All 2 Ed Davey contributions to the Crime (Overseas Production Orders) Act 2019

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Mon 3rd Dec 2018
Wed 30th Jan 2019
Crime (Overseas Production Orders) Bill [Lords]
Commons Chamber

3rd reading: House of Commons & Report stage: House of Commons

Crime (Overseas Production Orders) Bill [Lords] Debate

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Department: Home Office

Crime (Overseas Production Orders) Bill [Lords]

Ed Davey Excerpts
2nd reading: House of Commons
Monday 3rd December 2018

(5 years, 3 months ago)

Commons Chamber
Read Full debate Crime (Overseas Production Orders) Act 2019 Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: HL Bill 134(a) Amendment for Third Reading (PDF) - (15 Nov 2018)
Nick Thomas-Symonds Portrait Nick Thomas-Symonds
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I doubt that even I could match the rates of the Attorney General.

As the Minister has explained, the purpose of the Bill is to permit a court in this country to require a person or company located overseas, such as an overseas service provider, to produce stored electronic information, as a court could if the information were located or controlled in the United Kingdom. That will be done via the overseas production order for which clause 1 provides. An order can be operative only if the UK signs a treaty enabling it to be exercised. UK law enforcement authorities will be able to apply for an order that requires the production of electronic evidence for the purpose of investigating or prosecuting crimes such as terrorism offences. At present, if UK law enforcement requires electronic data from another country, it must go via a mutual legal assistance treaty, but that process can be slow to complete.

I very much appreciate and accept that electronic information is crucially important for the investigation and prosecution of criminal offences, and indeed is gaining in importance. The Minister set out the case of Dr Matthew Falder and some of the horrific child sex abuse images found on various websites, and it is clear that having a smooth, fast, efficient process to obtain this information is important, which is why the Opposition support the aim of this Bill; we do need a faster system.

I should also point out that I recognise the particular importance of the United States, first because this is the country where so much of the data is held and so many communication services providers—CSPs—are based, and, secondly, because the UK has been negotiating a bilateral data-sharing agreement with the United States since 2015.

The Minister knows that the Opposition are always happy to work with him in trying to reach consensus on matters, but there are aspects of this Bill about which I and my colleagues in the other place have concerns. First, I say to the Minister that we will be looking in Committee to pursue issues such as bulk data, confidential personal records and non-disclosure requirements.

There are also two other specific points of controversy that I will draw to the Minister’s attention now. The first of them relates to assurances on the use of the death penalty in cases where this country hands over data. The Bill is reciprocal, which allows countries with which a treaty is negotiated to seek a court order for electronic data stored in the UK to be transferred to another country. The current treaty is being negotiated with the US, and US law enforcement could apply via its courts for electronic data in the UK to be used as evidence in a particular case. There are currently 30 states in America that retain the death penalty.

I appreciate the Minister’s efforts to make this a more transparent process than has previously been the case, when Home Secretaries could, in private, make decisions in individual cases that are capital cases about handing over information. My right hon. Friend the shadow Home Secretary asked an urgent question on one issue in this House in July, which was due to a leaked letter from the Home Secretary to the then US Attorney General, Jeff Sessions. In the letter, the Home Secretary stated:

“I am of the view that there are strong reasons for not requiring a death penalty assurance in this specific case, so no such assurances will be sought.”

The Minister responding to my right hon. Friend stated at the Dispatch Box:

“I can reassure the House that our long-standing position on the use of the death penalty has not changed.”—[Official Report, House of Lords, 24 July 2018; Vol. 792, c. 1612.]

While I accept that the Government cannot control whether another Government provide assurances that are asked for, they can control, where assurances are not forthcoming, whether information will be handed over, and that includes information which could lead to evidence being gathered for use in a court, as well as evidence itself.

My noble Labour colleagues in the other place tabled a strong amendment in this regard which passed by 208 votes to 185 and was added to the Bill. The effect of it is to prevent such handing over of information unless there are assurances that the death penalty will not be imposed. This is important for those of us on these Benches who oppose the death penalty in all its forms and are passionate about human rights here and around the world. Furthermore, while we are, quite rightly, focused on the United States for the reasons I have set out, this Bill could be used, alongside a treaty, as the basis for reciprocal information exchange with other countries around the world where the rule of law is not respected by the regimes in power there, making the need for safeguards in this Bill even more pressing.

Secondly, there is a concern regarding the protection of journalists’ confidential information.

Ed Davey Portrait Sir Edward Davey (Kingston and Surbiton) (LD)
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I agree very much with what the hon. Gentleman has said on the death penalty reassurance point. He will note that the Minister said in his speech that the amendment was somehow defective. Does he agree that if that is so the Minister needs to make his case in detail and put forward another amendment so he can ensure that these death penalty assurances can be given?

Nick Thomas-Symonds Portrait Nick Thomas-Symonds
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The right hon. Gentleman puts his finger on a crucial point. The amendment passed the other place with a comfortable majority, and if it is to be argued that there is, perhaps, a technicality that renders it defective, the Minister must identify it in Committee so the House can on Report at least take a firm view on it.

On the protection of journalists’ confidential information, while the Government have argued that provisions in the Bill match those of the Police and Criminal Evidence Act 1984, there are specific instances where it does not quite match PACE, and I will give a few examples, which no doubt can be explored in Committee.

Under PACE, notice is required in all applications for journalistic material, and there are two types: confidential or “excluded material” and non-confidential or “special procedure material”. However, under clause 12(1) of the Bill, provision is made to notify organisations only when the material is confidential journalistic material:

“An application for an overseas production order must be made on notice if there are reasonable grounds for believing that the electronic data specified or described in the application consists of or includes journalistic data that is confidential journalistic data.”

An application for non-confidential material—for example, where a journalist made a documentary and had some notes—often facilitates a negotiation process about what data is appropriate to provide to the authorities and offers the right of the media organisation concerned to oppose it formally. The Bill’s failure to make provision for a notification to request non-confidential journalistic material is a concern.

Conditions must be met for the court to grant a production order for special procedure material under PACE, including the following: there are reasonable grounds for believing the material is likely to be of substantial value to the investigation; disclosure is in the public interest; and there are reasonable grounds for believing that the material is likely to be relevant evidence. While clause 4(5) and (6) include both public interest and “substantial value” tests, they do not include a “relevant evidence” test. That is again a matter we will look to pursue in Committee.

Adopting a threshold of what data is “relevant” to an investigation is both necessary and proportionate; as well as helping to enable clarity and consistency in cases, it is in line with human rights principles. Judges considering these applications will be familiar with the application of these recognised legal standards, and it would be a simple and sensible safeguard to bring these provisions in line with those under PACE.

Under PACE, tests are only limited to “investigations”, while the Bill is worded in such a way that the tests could be applied to include investigations and proceedings. It is not clear why this should be required right up to trial.

There is a further concern with regard to protection for “excluded material”, or journalistic material that is held subject to a duty of confidence. Under PACE, “excluded material” has a different set of conditions that need to be met. Why should that be different in this Bill?

Journalists play a fundamental role in holding those in power to account, and we must ensure that this legislation does not in any way suppress investigative journalism or the exposure of public interest matters. Thus while the Opposition do not oppose the Bill’s purpose and welcome measures for the speedy exchange of electronic data, we will be looking to put safeguards into the Bill on handing over information, to protect the clear will of the other place with regard to the death penalty assurances and to protect the long-cherished principle of confidentiality of journalists’ sources.

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Ed Davey Portrait Sir Edward Davey (Kingston and Surbiton) (LD)
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I pay tribute to the hon. Member for Chelmsford (Vicky Ford). I think the Internet Watch Foundation does a fantastic job, and it is already saving lives, so everyone involved in the organisation deserves our thanks and gratitude. It is in that spirit that I rise to support this Bill and to say that the Minister was absolutely right to make his argument in the way that he did. The legislation goes beyond defeating the people involved in child sexual exploitation, and others committing horrendous nasty, violent crimes will also be caught by these important measures. Beyond that, the Bill will act against terrorism and so on, so the Government are absolutely right to pursue it.

All that is part of the way that we in this House need to support international co-operation against crime. Although this Bill will help to speed up the work that needs to be done via the courts to enable the investigatory bodies to get these criminals and hopefully stop such activities, I gently point out that the European Union already has many successful tools and instruments, and it is a shame that it looks like we are reducing our ability to use them.

However, in totally supporting the thrust of the Bill, I associate the Liberal Democrats with the gentle criticisms of the Labour and SNP Front-Bench spokesmen, who made important points about death penalty assurances and journalistic freedom that must be considered and put right in Committee and on Report. On the death penalty assurances, joint efforts between Labour and Liberal Democrat Lords secured that amendment, and it will take some proof to convince us that it is defective. Indeed, the Liberal Democrats would like to go further. Although the amendment was welcome, the fact that it relates to section 52 of the Investigatory Powers Act 2016 means that there may well be other treaties involving the sharing of collected electronic data to which it may not apply. Given the significance of that, it is important that we go as far as we possibly can. The UK must oppose the death penalty in all circumstances, and we need an assurance from the Government that the law is extremely tight.

Ben Wallace Portrait Mr Wallace
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Will the right hon. Gentleman therefore clarify his party’s position if we were in a negotiation with another country and the other country said, “Look, we cannot give you the death penalty assurances.”? Some 99.9% of the data requests under this Bill will be concerned with crimes of paedophilia or the other crimes that I described earlier. Should the death penalty become a bar, is the right hon. Gentleman saying that the UK should not enter into an agreement because of the rare occasions on which an offence may involve the death penalty? Would he sacrifice the 99.9% for that?

Ed Davey Portrait Sir Edward Davey
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The Minister is being slightly sneaky. It is quite possible to take the two issues separately and deal with them separately. It is quite easy to see how one would ensure that the welcome measures in this Bill apply to the cases to which we all want them to apply while ensuring that the death penalty assurance, which ought to unite the House, is also dealt with properly.

I am sure that the Minister understands that Opposition Members in the other place and in this place are using this point to try to ensure that the Government move on this point. He will be aware of the cases of Alexanda Kotey and El Shafee Elsheikh from earlier this year, in which the Home Secretary—I acknowledge that this was revealed in a leaked letter—assisted the US to prosecute them without seeking death penalty assurances. That shocked people on both sides of this House, and the Minister is absolutely aware of that concern, so it is incumbent on those on the Treasury Bench to explain to and reassure this House that that cannot reoccur and that we will find ways through such issues.

Ben Wallace Portrait Mr Wallace
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I fully understand the right hon. Gentleman’s point. He talks about “our wish”, but he cannot speak for the other country that may be involved in forming an international agreement. They may say, “That’s fine. We know what you want, but we are not prepared to do that.” In that case, the decision becomes whether we want to use this legislation for the urgent and speedy data requests that happen 99.9% of the time for offences that are egregious and horrible but do not warrant the death penalty. He cannot speak for another country, so would he sacrifice the whole Bill?

Ed Davey Portrait Sir Edward Davey
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I am afraid that the Minister is still trying to split hairs. I am sure that no one in this House wants to get in the way of measures that will ensure that we can work with other countries to tackle criminals. Equally, however, it is incumbent on the Government to find a way to ensure that what we heard from the Home Secretary earlier this year does not happen again. The Minister is in the Government and has the officials to come forward with proposals to be able to manage both those issues.

It does not seem beyond the wit of man and the clever officials in the Home Office to produce such proposals. If he is saying that the amendment made in the other House is defective because it has the problem he is raising with me, let Home Office Ministers come to the House in Committee or on Report to show that and to produce an alternative that deals with the matter, about which I am sure he shares my concern.

Ben Wallace Portrait Mr Wallace
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My point is that the moment for the House to look at that is not when considering this Bill but when whatever treaty or international arrangement we make with whatever country we need to make it with comes before the House for scrutiny. Then we can have a debate about whether the international treaty we have sought to give effect to this order is right for the balance of risk, but the generic primary legislation that allows an order to be made is not the right vehicle.

Ed Davey Portrait Sir Edward Davey
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What the Opposition parties are saying very clearly to the Minister is that he has to make that case in Committee, just as the hon. Member for Torfaen (Nick Thomas-Symonds), the Labour party’s Front-Bench spokesman, made clear when I intervened on this very point. The Minister should make the case, but he should also explain how the Government will deal with the problem, which has arisen because of the actions of the Home Secretary not because of the actions of the Opposition.

We are concerned about the potential for this Bill to undermine protections for the freedom of the press. To be generous to the Government, what I think has happened is that, in pursuing a laudable aim that we all support, they went to the statute book and said, “Which statutes can we copy and paste to enable us to meet our objectives?” Rather than looking carefully at how, in domestic law, the Police and Criminal Evidence Act 1984 has carefully nuanced the use of the Terrorism Act 2000, Home Office officials, possibly because of the culture in the Home Office, just cut and pasted mainly from the Terrorism Act. That may have been a mistake, and there may have been no deliberate intention for it to have the consequences that now appear before us, so I gently say that I hope the Minister will go away and think about this. I invite him to meet right hon. and hon. Opposition Members, as well as representatives of the media to hear in detail the genuine concerns not just of BBC lawyers but of lawyers representing other media organisations.

We have heard from other Members about the relevant evidence test, which is in our domestic law and has been carefully developed over a period of years, but that test will not be applied to protect journalists with respect to material that comes from their investigations abroad. That is quite worrying if one looks at the practical examples. Take the case of Mark Duggan, for example. He was shot by the police in Tottenham in 2011, and the BBC obtained mobile phone footage of the aftermath from a witness. The BBC was ordered to turn over the footage and, because it was relevant evidence, the footage was handed over. Then an application was made for information that would reveal the identity of the source of that footage. The person who had shot the footage was understandably concerned for their safety, and the BBC successfully opposed the application by pointing to the relevant evidence test in the Police and Criminal Evidence Act. That test is not in the Bill, so there is a clear example that, by not being as subtle in this legislation as we are in our domestic legislation, there is a danger that journalistic freedom, as exercised abroad, will be curtailed.

The point about the notices is relevant, and it should worry the Minister because the way that notices work under domestic legislation is very helpful not just to journalists but to the police. Sometimes when the police put a notice to a journalistic organisation, that organisation will go back to the police and say, “You are asking for a huge amount, and we don’t really think it is necessary for your investigation. Let us enter a dialogue with you to narrow down your search so you can get information that will really help you, and therefore you will not have to waste so much time.” The notice actually turns out to be helpful in speeding up investigations. Given that that is the whole purpose of this Bill, the Minister should go away and look at that.

Moreover, it is not just about thinking of the police’s point of view in speeding things up; it is also about making sure the police know whether the evidence exists. The way some notices work at the moment is that the police go on a fishing trip. There is the example from Durham police, they applied to the BBC without notice. Durham police were eventually told that they could not do that and that, if they had submitted a notice, they would have learned that the material no longer existed. Again, the BBC was trying to save police time.

Some of the carefully constructed domestic law needs to be put into this internationally applying legislation in order to help the police and security services, not just journalists. I am sure this is just an unintended consequence, and I am sure there is no malice, so I hope this is the sort of issue that can be settled by a few meetings and a few amendments that garner support from both sides of the House. That is how scrutiny should operate in this Parliament, and I hope the Minister, with his usual generosity, will be open-minded to that approach.

Crime (Overseas Production Orders) Bill [Lords] Debate

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Department: Home Office

Crime (Overseas Production Orders) Bill [Lords]

Ed Davey Excerpts
3rd reading: House of Commons & Report stage: House of Commons
Wednesday 30th January 2019

(5 years, 1 month ago)

Commons Chamber
Read Full debate Crime (Overseas Production Orders) Act 2019 Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: Consideration of Bill Amendments as at 30 January 2019 - (30 Jan 2019)
Ben Wallace Portrait Mr Wallace
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The hon. Gentleman is right. Further amendments that we have tabled provide for concessions to protect journalistic data. I have taken on board these points from Members on both sides of the House. Throughout the Bill, I have met many Opposition colleagues, including my shadow, the hon. Member for Torfaen (Nick Thomas-Symonds), on numerous occasions, and we have offered concessions that have never been offered before. One of them will put in primary legislation a mandate for the Secretary of State to seek assurances. In my view, we cannot go beyond that and force them to get those assurances, because a responsible Government might not have the upper hand at the time or have the leverage to do that, but the necessity for security is important.

This will be the first time that that has been put in primary legislation. It will put in place a policy that existed in loose form under the last Labour Government, when, in exceptional circumstances, Ministers were allowed not to seek assurances. The overseas security and justice assistance—OSJA—guidance was published in 2010 by the coalition Government, of which I think the right hon. Member for Kingston and Surbiton (Sir Edward Davey) was a member. That put in writing part 9. There are occasions on which we might be allowed not to seek a death penalty assurance, but I do not want that to become the dominant force. As I have said, we have not found a single example in the past 20 years that produced this challenge or quandary for a Minister. This is simply about comms content data; that is all it is about.

Ed Davey Portrait Sir Edward Davey (Kingston and Surbiton) (LD)
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I hope the Minister recognises that all Members on both sides of the House want to find ways of sharing data so that we can go after these wicked people who abuse children. Will he therefore tell us what efforts have been made, in discussions with our American friends, to find a treaty that deals with those crimes and others but stops short of those crimes that could result in the death penalty? What efforts have been made to carve out those crimes so that they could be dealt with in a second treaty?

Ben Wallace Portrait Mr Wallace
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I have personally asked them to look at carve-outs in that area, and I know that officials are still working on the drafts. This is my point: the treaty will come before the House when it is still in its draft stage. I have not read the draft as it stands; it is too early. This is not going to appear next Tuesday as a treaty. We will try to maintain as much as we can in the treaty, but we must recognise the leverage that we have, the generosity of the Obama Administration’s original offer and the need of our law enforcement agencies to get on with these investigations as soon as possible.

Ben Wallace Portrait Mr Wallace
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I will press on, because I want to give the House an example. An operation commenced in August 2017 in which there were indications that a UK male suspect was using Facebook, Instagram, Gmail and Snapchat for the purpose of committing child sex offences. On the male suspect’s Facebook profile, he purports to be a teenage girl requesting friendship with teenage boys. He then engages them in sexual communication, asking them to send indecent images and/or videos of themselves committing sexual acts. The suspect sent indecent images of females sourced from the internet as bait to lure his victims into believing that they were communicating with and sharing indecent images with a teenage girl. The investigation has identified several individual Facebook accounts where indecent images of children have been sent to the user of the suspect Facebook account. Those individual accounts all belong to children.

The value of data evidence is apparent, because in that operation, the data has helped to identify in excess of 150 vulnerable child victims and enabled law enforcement to safeguard the children. However, the law enforcement agencies are still awaiting the authorisation from a judge in a US court to release the content that would enable us to prosecute and put away the individual who is doing this. Consequently, that individual is still at large. We have safeguarded the victims we know of, but our ability to charge and prosecute that person is being frustrated. We should not forget that a great deal of data is held for only 12 months, and some of the MLAT cases go on for two years or more. Not taking up the US’s offer would mean shutting the door on our police’s ability to stop abuse more quickly and to detect terror plots before they reach fruition.

Ed Davey Portrait Sir Edward Davey
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I repeat that the case the Minister is making is supported on both sides of the House. I very much doubt that there will be a Division on Third Reading—certainly we on these Benches will be supporting the Bill at that time—so he does not need to make this case, because we all support him. The issue of this debate on new clause 1 and other alternatives is whether we can achieve the goals on which we all agree while also finding a way to implement existing Government policy on death penalty assurances. The Minister is recognised for working across the House—that is why he is held in such high regard—but it is our right to scrutinise legislation in this place, and in this debate we want to tease out whether we can find a way, through the treaties or through the Bill, to get those death penalty assurances that I am sure he also wants.

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Ben Wallace Portrait Mr Wallace
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My right hon. and learned Friend, whom I have known a long time, is the straightest politician in this House and always has the best motives. He is also the lawyer that one would want at one’s side in government, because he tells it how it is, not how one wants it to be. I thank him for his point. He knows how far back this effort goes. This Bill is not a political charge or an ideological step. In fact, without this amendment, it is probably one of the most boring Bills that we have taken through the House, but it is not a playground for ideological posturing on a theoretical issue.

There is a clear choice here: take up the offer from the United States, reject the amendment and help to keep our constituents safe, or agree with the right hon. Member for Hackney North and Stoke Newington who believes that this matter is a problem even though there are no examples from the past 20 years. She believes that we should say no to the US offer and put the whole thing at risk because our tiny amount of data could be combined with a criminal investigation overseas, when the crime is a capital offence and the offender is in a country or US state that has the death penalty, and our data alone could be the crucial piece of evidence that leads to a conviction. If ever there was an example of politics getting in the way for the most bizarre and abstract reason, it is here.

Ben Wallace Portrait Mr Wallace
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I will come to the right hon. Gentleman. All the amendments are grouped, so we have plenty of time.

Having said that, I have to apologise to the right hon. Member for Hackney North and Stoke Newington and to the Leader of the Opposition. In her column, the right hon. Lady said that I attacked her personally by criticising what was going on. I apologise that I did so, but I did so because I meant it. That is not the Labour party that I know. I have family in the Labour party. I have a relation who was a Labour MP in the 1930s and, if I remember correctly, the first socialist Lord Advocate in Scotland. The Labour party that I know would not play this type of politics with our constituents. A Labour party led by pretty much any other Labour Member would never have indulged in this type of nonsense.

The Labour party that I know in Lancashire, in the north of England and in Scotland keeps people safe and recognises the responsibility that goes with governing and that there is a balance. It is a truly difficult balance, which people of the best motives make every single day, between upholding values and keeping people safe. That is why I apologise that I had to make that attack, but I made it all the same. It is incredibly important that a Government in waiting should be led by people who recognise that their duty in government will be to make difficult decisions and to reflect the reality of the 21st century, not some abstract theoretical nonsense that panders to a few.

Ben Wallace Portrait Mr Wallace
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No. The Labour Front-Bench team are saying that if we do not get what they want, we should block the treaty. The condition from the United States or any other country could be, “Look, I’m terribly sorry, but we have 90% of the data and you have 1%, so here’s our offer and this is the reality of it.” Labour is saying, “If they do not give us the assurances we want”—they go beyond the OSJA guidance and beyond the public policy of this Government and the previous Government—“the treaty will not be completed.” I am here to say that the treaty will not be concluded if those strings are attached in that way. That is the simple reality.

The consequences of that, as I have pointed out, will be felt in our constituencies up and down the country and will also be felt should the Labour Front-Bench team become the Government in a few years’ time. The people could be facing an existential threat to their security, and that Labour Government would have to make these same difficult decisions. We have worked incredibly well together on this Bill, but this issue cannot be removed into some abstract debate when this is about giving our law enforcement agencies the tools to do their job on a day-to-day basis.

Ed Davey Portrait Sir Edward Davey
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The Minister is being generous in giving way. I repeat that, as he knows, both sides of the House want exactly what he has just described. However, this House’s job is to scrutinise and ensure that legislation is being done in the right way so that other parts of Government policy are also upheld. He said in response to the right hon. and learned Member for Beaconsfield (Mr Grieve), a former Attorney General, that we should not worry about this because ECHR obligations, which he read out in some detail, would prevent Ministers from not complying with this policy. Will the Minister elaborate on that for the benefit the House? When the Home Secretary recently did not seek death penalty assurances, was that decision in line with our convention obligations?

Ben Wallace Portrait Mr Wallace
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I refer the right hon. Gentleman to the rulings by the High Court and the Lord Chief Justice. On five of the grounds for challenge from the plaintiff—if that is the right word in a civil challenge—the rulings found in favour of the Government. I am happy to have a conversation with him about that further if he reads the whole judgment, but it was certainly the case that the OSJA guidance and other things were not found to be in conflict with our ECHR obligations or any other obligation. If my memory serves me right, it was also found that we were not breaking our own Government policy on the matter. I caution the House that we do not know whether that judgment will be appealed, but a hearing related to it is ongoing. The case does not relate to data; it is about broader evidence that would remain through the MLAT process. As I pointed out earlier, extradition is a separate process. This legislation is about the data predominantly held by Facebook and Google and everything else, and it is so much part of the 21st century that we cannot escape the impact that it has on us.

Turning to amendment 18, I recall the hon. Member for Torfaen tabling something similar in Committee, and I am afraid that I am going to make the same arguments in response. Amendment 18 seeks to ensure that terms on which other states may access electronic data held in the UK mirror the UK’s own safeguards for press freedom. Forgive me, because I know that I have made this point countless times, but this amendment relates to incoming requests for UK-held data when this Bill is only about the UK’s outgoing requests for electronic data held overseas.

I completely accept the point that this Bill cannot work without a reciprocal international agreement in place, but amendment 18 directly relates to international agreements, as opposed to what our Bill provides for. This Bill is simply not the right place to mandate what is a right and laudable protection for journalists and their data. We cannot impose such conditions in advance of the negotiations of an international agreement. It is not a constructive proposition to tie our hands. I say to Opposition Members that I hear the case for change and that the United States’ first amendment is probably one of the strongest journalistic protections, so that would no doubt be reflected in a treaty. Of course, the UK would never agree to share data with a country with insufficient safeguards, but to mandate that on the face of this Bill is neither helpful nor necessary. Amendment 18 seeks to control the UK Government’s negotiating position, which would not prove desirable to any Government of the day.

Another point that I make repeatedly is to remind hon. Members that they will get ample opportunity to scrutinise any international agreement when the agreement is brought before Parliament, before it can be ratified under the Constitutional Reform and Governance Act 2010 process, and then again when secondary legislation is laid before Parliament designating the agreement for the purposes of clause 1 and under section 52 of the Investigatory Powers Act 2016. The Government amended the Bill in the other place to make it clear that only agreements to which the CRAG process applies may be designated under the Bill, so that scrutiny process must be followed in every case. Members will get the opportunity to scrutinise all international agreements related to this Bill properly before they are ratified.

I have two other brief points. First, the initial international agreement will be with the United States, as the majority of overseas CSPs are currently based there. As hon. Members will know, the US places a high regard on protecting freedom of speech and freedom of the press. Indeed, it is enshrined in the first amendment to their constitution.

Secondly, any additional international agreement that the UK enters into in future will, of course, be based on trust, mutual respect and each country’s adherence to principles that include the rule of law, due process and judicial oversight for obtaining and handling electronic evidence with regards to serious crime. No rational Government of the day would do a deal with a country that lacked regard for the rule of law or that failed to maintain press freedom. If a CSP moved to a country with insufficient legal safeguards, I would not push the Government of the day in any way to negotiate such an agreement, and I highly doubt that Parliament would ratify such a treaty.

This Bill is not the right place for the proposals raised by amendment 18. The amendment is not necessary for the reasons I have outlined, and therefore the Government will not support it. I ask the hon. Member for Torfaen not to press it.

Amendment 10 seeks to make confidential journalistic data an excepted category of material for overseas production orders, meaning that it cannot be sought using the Bill’s powers. Amendments 9 and 11 seek to define confidential journalistic data for the purposes of the Bill. Members have previously raised concerns about confidential journalistic data under the Bill, and I do not want to pre-empt our debate on other protections for journalists, which will come later, but the Government’s concessions in this area are appropriate and proportionate. I do not think it is right that confidential journalistic data should be entirely outside the reach of law enforcement agencies.

As with the amendment tabled in Committee, amendment 10 goes further than what is currently provided for under the Police and Criminal Evidence Act 1984. Although confidential journalistic material is excluded under PACE, it is accessible if certain access conditions are met.

I repeat the point I made previously. The Bill has not been drafted to mirror PACE exactly. It also takes into account provisions of the Terrorism Act 2000 and the Proceeds of Crime Act 2002. The whole point of the Bill is to speed up the unnecessarily long, drawn-out process that law enforcement agencies currently endure to get access to material to help keep our constituents safe. Of course, this in no way undermines the stringent tests that must be passed for an order to be granted in a court by a judge. The substantial value test and the public interest test will both have to be satisfied, and I will shortly come on to the further inclusion of a relevant evidence test.

Amendment 11 would carve out journalists’ communications data so that it cannot be accessed under the powers of the Bill. Such an amendment is not necessary, because clause 3(4) already precludes the possibility of obtaining communications data via an overseas production order. Where an overseas production order is sought against a telecommunications operator, the Bill will apply as if references to excepted electronic data included communications data.

The Bill has been deliberately drafted so as to avoid overlap with the existing regime for communications data under the Investigatory Powers Act 2016. Should law enforcement agencies wish to obtain any form of communications data, journalistic or otherwise, they will need to proceed using existing legislation to obtain it. To be clear, this Bill does not allow for the acquisition of communications data.

I agree entirely with the hon. Gentleman that journalists play a fundamental role in our society, but amendments 9 to 11 are not appropriate. This Bill will ensure that all journalists are part of the process of applying for an overseas production order when the material sought relates to them from the outset. Uniquely, they will be able to make representations to the court. I am confident that journalists will continue to be able to make a robust defence if they believe that is relevant.

Indeed, when working with the BBC on this legislation, one lawyer told my officials that not once in 10 years could he recall a court having overruled such representations. It is important that legislation drafted in the 21st century reflects the context of the day. The nature of journalism is evolving, and law enforcement officers must be able to adapt to those changes. I therefore ask the hon. Gentleman not to press amendments 9 to 11.

In Committee, colleagues including the hon. Members for Torfaen and for Paisley and Renfrewshire North (Gavin Newlands) and my hon. Friend the Member for Bexhill and Battle (Huw Merriman) expressed concern that the tests in clause 4 do not fully replicate the tests under schedule 1 to PACE, under which there is a relevant evidence test as well as a substantial value test and a public interest test, whereas the Bill currently includes only the substantial value and public interest tests. The Bill does not contain the relevant evidence test. As I explained in Committee, the Bill replicates the production orders not only under PACE but under POCA and the Terrorism Act. Neither POCA nor the Terrorism Act requires the relevant evidence test when seeking evidence in relation to the proceeds of crime, as our law enforcement agencies will do with overseas production orders. Nevertheless, I promise to go away and consider the issues.

--- Later in debate ---
Ed Davey Portrait Sir Edward Davey
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This is a very good Bill overall. It is much needed, and it is not controversial, which is why we will not vote against its Third Reading. However, our debates have shown that there is a chance to improve the Bill. Back Benchers have been able to improve the Bill, as we have seen with the amendments tabled by the hon. Member for Bexhill and Battle (Huw Merriman). I strongly support his amendments, which are well judged, and I know that the BBC supports them, too. I also support Labour’s amendment 18. It is not unreasonable to expect Government to try to ensure that there are protections for journalism and free expression in these treaties, and the world would expect Britain to uphold that. We hope to get agreement across the House on those amendments.

It is a shame that there is disagreement on the death penalty assurances. The Minister has been trying to reach out, but he will know that new clause 1 is only about seeking assurance, not receiving assurances, which is the issue at the heart of this disagreement. I intervened on the Minister earlier to ask whether there had been discussions about a carve-out for the types of offence that we are worried out. I would have thought that that would be incredibly easy, because the number of death penalty executions and cases that will result in it is tiny. I therefore would have thought that the US—a very practical people—would accept a treaty with that carve-out. The amendments tabled by my party and the Labour party would enable such a carve-out to be pushed forward. That is not unreasonable.

The Minister talks about the inequality of arms, and I get that—America is rather bigger than we are—but this is not about the Americans doing us a favour. We have data to offer them, too. It may only be 1%, but they want it. They want to catch their criminals—they want to catch the bad guys, too. We have a great record of working with them, and we should continue that. It is not as one-sided as he portrayed.

Let us remember what we are trying to achieve. A huge number of people in Congress and across America are campaigning to get rid of the death penalty. Nineteen US states no longer have the death penalty, and six of those have changed their laws since 2007 because of successful campaigning. That is one reason why we should stand up for this principle. This debate is live in the US, and it is important for not only the people we are talking about but US citizens that we send this signal. In addition to the states that have got rid of the death penalty, 11 states have not executed anyone for 10 years—it is de facto not used—so that makes 30 states. The federal Government have not executed anyone since 2003. The facts do not bear out the idea that we are pushing at a closed door and that there is massive opposition in the US political system.

Ben Wallace Portrait Mr Wallace
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The right hon. Gentleman makes a valid point. He also highlights how very rare this is, which goes to the point about balance. This is not just about death penalty assurances. This is about the United States Administration saying, “You can’t have your cake and eat it. You want all this help and all this data, and you want us to take back foreign fighters and try them, but no sooner do we say yes than you start telling us how to do it and giving us conditions.” That is part of the overall assessment that the Government made in some other cases. In this case, the data has never been an issue in the past 20 years. That is why our judgment and the clear message from the United States Administration is that that would jeopardise the treaty.

Ed Davey Portrait Sir Edward Davey
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I hear what the Minister says, and I know that he knows there is not a lot between us on this, because we are all trying to get to the same objectives. However, the points he makes could be argued against the US position, and because we are close allies, we could close that gap. It would not be terribly great for Senators to oppose this Bill—they have Senate ratification —as they would be held to account by their citizens for getting in the way of sharing information to catch paedophiles.

As British politicians here, from all sides and including the Minister, we should stand up for British principles. Yes, we want to catch these appalling criminals, but we must make sure that we advance justice and human rights. I do not think we should see these things as separate and deal with them separately—we can bring them together. It would be a good step for this House to stand up for this principle, which we all share and which is and has for a long time been Government policy, and say to our close friends in the US that we believe we can come to some agreement.

The Minister made it clear in his response that the treaty is still in development. The hon. Member for Torfaen (Nick Thomas-Symonds) talked about how a lot of people in the US, particularly in the State Department, are expecting us to do this, so it is not unreasonable that we do, and I hope that the Minister, who is highly respected across this House and whose Bill we utterly support, can understand why we are trying to make this extra push. We are doing this to help him in his negotiations.

Lord Walney Portrait John Woodcock
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Listening to this debate, I found myself nodding along with the shadow Minister, as often I do. He made a well-honed speech about the bipartisan approach that has long been taken on the death penalty and the UK’s opposition to it on both sides. I tried to reconcile that with his party’s position, which is to oppose new clause 1. I was agreeing with what he was saying and I have some sympathy because the reasoned approach that he characteristically takes at the Front Bench is not matched by the diktat that comes down from the shadow Home Secretary and the leader of his party.

I have to say to the shadow Home Secretary: for the second time this week, she has ended up in a position where I and others are further to the left than her on a key issue. I sat behind her on Monday night, when she was explaining to the House why it was right to abstain on the Immigration and Social Security Co-ordination (EU Withdrawal) Bill. The Lords have rightly, and in a way that is welcome, forced a concession from the Government—to me, new clause 1 seems substantive in writing into the Bill the requirement for this and any future Government to seek assurances on the death penalty. As has been rightly said, that approach has long been practice but it was, in terms of extradition, in a way that was quite troubling, disregarded in the instance of Mohammed Emwazi and others.

New clause 1 has been tabled after pressure from the Lords. It is a step forward in legally codifying opposition to the death penalty. As I understand it, the Labour party is going to try to force its Members of Parliament to vote against it, in the hope that they will then get to an amendment which would be unworkable and would indeed wreck the chances of a treaty, as the Minister has convincingly set out. Assuming that new clause 1 goes through—I will certainly be voting for it and I am encouraging many Labour colleagues to vote for it or abstain—we are not, as I understand it, going to get to the Labour amendment, by which they appear to be setting store. I am afraid that that epitomises the deep oppositional politics that has always been a hallmark of the shadow Home Secretary and the Leader of the Opposition. It is an example, I am afraid, of why it would be so deeply troubling for the nation if they were given the chance to stand at the other Dispatch Box and have the authority to act as Home Secretary and Prime Minister.

This seems to have been another week when precedents are changing in this House. As I understand it, the Labour Whip is no longer binding on either Back-Bench or Front-Bench MPs, and it seems to be possible for Labour Front-Bench MPs to break their own Whip and remain on the Front Bench. I do not know if there is a requirement to go and sit in the Smoking Room to be exempt from what would otherwise be the strictures of the Front Bench.

This means that Labour MPs are being forced into making a false choice on human rights. We have to uphold human rights as a country. If we do not uphold them, the law will bring the Government into line, as it may yet do in the case of the so-called “ISIS Beatles”. The Labour leadership are forcing a choice on this incredibly important action to gain the treaty to speed up action against paedophiles, and on action to be able to convict British terrorists. They are forcing their MPs to choose one or the other. It is a false choice and one that I hope MPs will reject. I hope they will vote for new clause 1, so that we can go ahead with a strengthened Bill, which the country needs.