Justice and Security Bill [Lords]

Jack Straw Excerpts

Monday 4th March 2013 Commons Chamber

[Mr Davis]

As one of the two junior Ministers who took the Secret Intelligence Service Bill through the House and asked the then head of MI6 whether he really meant this, I can take his point. But the simple truth is that we have to live up to those standards of accountability, and that means open justice wherever we can have it.

One of the interesting divides that has taken place in all this is almost a generational one. We have had closed material procedures only since—

[Mr Jack Straw (Blackburn) (Lab)]

1997.

[Mr Davis]

Yes, 1997; for only a decade or two. A generation of special advocates have taken a strong stance on this, and they have taken a different stance from everybody else because they have experienced both sorts of procedure. Nearly all of them have personally understood the closed material procedure and the PII procedure, and most of them know both procedures inside out. One of the things they argue—a point made by my hon. Friend the Member for Chichester (Mr Tyrie) in his brilliant speech, every word of which I agreed with—is that PII has been misrepresented. Any special advocate will say that PII is a much more complex, judge-created, judge-evolved process than is being represented. Of course there can be simple blocking; of course, in addition, there can be redaction; of course there can be circles of confidentiality; of course there can be in-camera hearings. The Minister without Portfolio rather dismissively said that this is the system that gave us arms to Iraq. Even in that process, which involved at least one ex-Minister and one Minister in the House today, early on in the development of PII we saw one category of certificate refused, one category accepted and one category heavily redacted. That gave the court enough information to make Alan Clark face the interrogation in which he came out with those famous words “economical with the actualité”, which collapsed the case because the prosecution recommended an acquittal on the basis of the evidence.

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[Mr Davis]

Forgive me, but I am just coming to an end.

The right hon. Member for Salford and Eccles was persuasive in arguing that if there is to be some sort of opt-out on gisting if things are really serious, only the judge should decide that. I take that point, and it is a good argument. There should be proper, explicit judicial balance in the decision to go to a CMP that takes into account all the interests of justice, and not just national security. There should be the argument of strict necessity; that is what I mean by the hierarchy. On that basis, the House could come to a conclusion in which we effectively have the best of all worlds.

[Mr Straw]

I begin by drawing the House’s attention to the fact that, along with Her Majesty’s Government and an official, I have been a defendant in civil actions brought by two Libyan nationals and their families— Mr al-Saadi, whose case was settled just before Christmas, and Mr Belhaj. In the case of Mr Belhaj, proceedings are still active; in the circumstances, I am sure the House will understand how constrained I have to be in respect of those matters at present. I hope to be able to say much more about the cases at an appropriate stage in future. However, I should make it clear that at all times, in all the positions that I occupied as a Secretary of State, I was scrupulous in seeking to carry out my duties in accordance with the law.

My purpose in rising to speak now is to explain why I believe that the Government’s formulation for the conditions for a closed material proceeding are to be preferred to those of the Opposition. However, I want to make two more general points to begin with.

First, the freedoms that we in this country take for granted are built on our system of justice, which is among the very best in the world. It is independent, fair and fearless—and it is transparent, for the very obvious but crucial reason that justice must not only be done, but be seen to be done. It follows that we should permit departures from that principle of openness only in the most exceptional circumstances.

Whenever Parliament has been asked to agree to having part of a court’s proceedings in camera or to having the identity of witnesses, or most seriously the evidence itself, withheld from one of the parties to the proceedings, it has scrutinised the legislation with the greatest care. It has nonetheless been convinced that, in some cases, the interests of justice do require such special procedures.

Thus in 2008, Parliament agreed, in the Criminal Evidence (Witness Anonymity) Act, new statutory procedures for the taking of anonymised evidence in criminal trials. That evidence has to be heard by the defendant and the jury, but its origin—the names involved and often the exact circumstances in which it came to be produced—is kept secret and away from the defendant.

More relevantly to today’s proceedings, in 1997 Parliament decided on a cross-party basis to establish the first arrangements for closed material proceedings in respect of persons whose deportation had been ordered on grounds of national security but where the evidence against them could not safely be disclosed to the deportee or their representatives.

I note what the special advocates have said, because we are all reluctant to see such a system operate, although it has to because it is better than any alternative. In the intervening period, that system has worked for the Special Immigration Appeals Commission, and worked reasonably well. The senior judges who preside at these proceedings, in SIAC, have shown themselves to be robustly independent. Of 37 substantive cases before SIAC since 2007, the tribunal—a senior judge with colleagues—has found against the Government in at least seven. The procedures in the Bill build on the 15 years’ experience of SIAC.

Secondly, I commend my right hon. Friend the Member for Tooting (Sadiq Khan) and his colleagues for the constructive approach that they have adopted towards the Bill. I spent 18 years on the Opposition Benches between 1979 and 1997 and then witnessed the Conservative Opposition during their 13 years on these Benches. The temptations on Oppositions to oppose in a destructive way are considerable, and so too are the pressures from outside on them to operate in that way. We in my party succumbed to those pressures too often in 1980s, and, I am afraid, so did the Conservative party on many occasions, including on Bills like this, during part of its 13 years in opposition.

By contrast, my right hon. Friend and his colleagues, from the outset of the publication of the Green Paper—I well remember his response to that a year and a half ago—have accepted, as he said in his opening remarks, that there may be circumstances in which closed material procedures have to be applied in civil cases, but argued that there should be greater safeguards in the Bill and, crucially, that the court, not the Secretary of State, should decide whether a CMP should operate in any particular case. As a result, the Bill has been significantly improved, and my right hon. Friend and his team can rightly claim considerable credit for that.

Let me turn to the key amendments 30 and 31 and the amendments to which they are linked. The amendments seek to reword clause 6(6) and to add a third condition. Thus the Government propose,

“The second condition is that it is the interests of fair and effective administration of justice”

to use a CMP, while the Opposition instead propose that the second condition should be a relative one—that

“the degree of harm to the interests of national security if the material is disclosed would be likely to outweigh the public interest in the fair and open administration of justice.”

They also propose to add:

“The third condition is that a fair determination of the proceedings is not possible by any other means.”

As the Minister said, this is colloquially called the Wiley balance test. However, when I looked at the definition of the Wiley test I noted that the Joint Committee on Human Rights has turned it into something else. It is a test, but it should not be adorned with the phrase, “the Wiley test”, because it goes considerably further. I do not dispute anybody’s motives in dealing with this incredibly difficult issue. However, shifting the test, even if it were the accurate Wiley test in respect of PIIs, to CMPs has the defect of arguing by analogy. It is appropriate in PII cases but not in this regard.

We have had a great deal of elucidation. I commend—but do not, with respect, agree with—what the hon. Member for Chichester (Mr Tyrie) said about the uses of PIIs. I also accept the comments of the right hon. Member for Haltemprice and Howden (Mr Davis). During the nine years for which I was responsible for the various agencies, I quite frequently had to make applications to a court for a PII. Even in respect of marginal evidence, PIIs are hugely time-consuming. It is not like dealing with a letter to a Member of Parliament on an issue that one knows backwards where one can virtually top and tail it in one’s sleep. One has to read every single piece of evidence that one is certifying ought to be—in one’s own view, although it is a matter for the court—excluded on grounds of national security, or whatever the grounds may be. I accept the burden of what the right hon. Member for Haltemprice and Howden and the hon. Member for Chichester said. Yes, it is true—this was brought out by the court’s judgment in al-Rawi—that when the court receives an application for PII it is able not only to accept or reject it but to take a middle way—a third way, as it were—of gisting, confidentiality rings, and so on.

However, the profound difference in this regard is that ultimately, if the respondent party, which in civil cases is inevitably the Government—it is completely different in criminal cases, but this is not about criminal cases—do not like the decision that the court has come to, they have to decide not to contest the case at all. That is why there is a lacuna in the current arrangements, and that is the mother and father of this Bill. That does not apply in respect of CMPs, where the Government will not be able to use PIIs to exclude evidence as they can now, because the judge will say, “Hang on a second. Why are you applying to exclude evidence which is absolutely central to the case? You need to put it in, and I will decide, thank you very much, whether it should be kept completely secret or there ought to be some kind of gisting or summary of that evidence.” The right that accords to the state in respect of PII does not accord to it in respect of CMPs.

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[Mr Ellwood]

The right hon. Gentleman said that he is still here, and I think that the House very much appreciates that given what he is offering to the debate with his experience. Does he agree that, as my hon. Friend the Member for New Forest East (Dr Lewis) said, PIIs offer an opportunity for judges to redact information that could otherwise be used in the processes proposed for CMPs, or for that argument to be put forward?

[Mr Straw]

Of course. Those of us with experience of SIAC will know that it too could be seen as a parody of a secret court. In SIAC cases, the chairman of the tribunal, who will be an experienced senior judge, issues a closed judgment with all the argument in it and a redacted judgment with a very great deal of evidence in it. The idea that it is—fortunately nobody in the Chamber has used the term, “a parody”—a secret court worthy of Kafka’s “The Trial” is, frankly, utter nonsense.

[Richard Fuller (Bedford) (Con)]

It is helpful for those of us who are amateurs with regard to these issues to benefit from the right hon. Gentleman’s judgment. He has referred a couple of times to the administration of SIAC. My understanding of and opposition to CMPs results from the case of a constituent who was subject to the restrictions of SIAC. His understanding of, and the way in which he was treated by, the criminal justice system and the impact of that form of justice on his physical and mental well-being are some of the reasons why I am emboldened to oppose the Government’s measures. Now that the right hon. Gentleman is no longer in office, has he had the opportunity to meet people who have been subject to CMPs in order to understand the implications that SIAC has had for their lives?

[Mr Straw]

Let us be clear that SIAC does not deal with criminal cases. There is no procedure in our system, north or south of the border—and nor should there ever be—whereby, in any criminal trial, somebody can be tried and lose their liberty without being able to hear all the evidence.

[Dr Huppert]

rose—

[Mr Straw]

I recommend that the hon. Gentleman not test me on the details of the Criminal Evidence (Witness Anonymity) Act 2008, because I know every part of it and why we had to go through with it.

[Dr Huppert]

I cannot resist the temptation. To amplify the point that was just made by the hon. Member for Bedford (Richard Fuller), does the right hon. Gentleman agree that in SIAC cases, as happened in control order cases, people’s liberty could be significantly curtailed without them knowing the evidence against them?

[Mr Straw]

Of course I do, and that was going to be my next point. No one is suggesting that SIAC deals with trivial matters. It deals with whether an individual should be deported on national security grounds, while the control order tribunals deal with restrictions of individuals’ liberty.

I have met one individual who was subject to a control order and will tell the hon. Member for Bedford (Richard Fuller) about the circumstances outside the Chamber. The heart of the issue is about protecting our national security. That has been discussed in abstract terms today, but what we are actually debating is how to protect the sources of information on which intelligence depends. These individuals are developed by our intelligence and security agencies and they place themselves at considerable risk. In essence, they provide information to the United Kingdom—as they would to a foreign intelligence agency—that they are not supposed to provide. Sometimes they betray their own Government or country. They are, by definition, giving away confidences and they do so for a variety of motives: some say that they are doing it for the highest of motives, which are that they fundamentally disagree with the system in which they are operating; some do it for the lowest of motives, because they have committed a criminal act and want some form of escape; and some are somewhere in between, in that they have high motives but they also want some money.

In every case, that information would simply dry up if the identity of that individual, or information leading to their identification, was compromised. That is the fundamental dilemma, and there is no way out of it unless we want to abandon our intelligence and security agencies. Let us remind ourselves—this is not scare- mongering; it happens to be true—that, had we abandoned those agencies, scores of serious atrocities would have killed our constituents and many others. If we had explained how we had ended up in such a situation by saying that information had to be provided in its entirety in open court in all circumstances, people would have said, “Thanks very much, but my relative, wife or child has just died.” That is the dilemma and it is not abstract—it is absolutely real.

[Jeremy Corbyn]

Will my right hon. Friend give way?

[Mr Straw]

I hope that my hon. Friend will allow me to make progress, because I have already used up a lot of time.

This leads me back—I will finish shortly—to the reason why, with great regret, I cannot support the endeavours of my hon. Friends on the Front Bench to set a relative test that

“the degree of harm to the interests of national security if the material is disclosed would be likely to outweigh the public interest in the fair and open administration of justice.”

That could lead, inadvertently and unintentionally, to a situation in which a judge might decide that the identity of an agent or other crucial information about the work of our intelligence agencies needed to be disclosed in the interests of open justice. We have to accept that the justice under discussion is, by definition, not open. It cannot be—we cannot have it both ways. There is no dubiety about that. I understand why the test has been proposed, but it does not work.

Finally, many Members have reputations as liberals, including the Minister without Portfolio, the hon. Member for Chichester and many on the Liberal Benches. I have never sought that reputation, and nor has it been offered to me, but Lord Woolf, the former Lord Chief Justice, is someone of impeccable liberal credentials—he even lives in Barnes. He wrote in a letter to The Times that the Bill as drafted

“now ensures that we will retain our standards of general justice, while also putting an end to the blindfolding of judges in this small number of cases.”

To be frank, if it is good enough for the liberal Lord Woolf, it ought to be good enough for this House.

[Several hon. Members]

rose—

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[Dr Huppert]

I dare say that it would. We will have to see what happens.

To return to the principle, I talked earlier to the right hon. Member for Blackburn about the range of civil proceedings into which the previous Government introduced close material proceedings. I find many of those far more objectionable than civil cases. I do not like the introduction of closed material proceedings into civil cases and find the principle very difficult. However, I find it worse when people’s liberty is at risk. That is the case with control orders, terrorism prevention and investigation measures, and SIAC.

I know something of the case referred to by the hon. Member for Bedford (Richard Fuller) because we have discussed it in the past. The gentleman referred to has had his liberty seriously infringed. It is not a simple question of whether he is allowed to stay in the country or not. He has been detained for a considerable time now, given that it is two years since we last spoke about the case in great detail, based on evidence that he does not have the chance to see. That strikes me as deeply alarming. I am sure that the whole House would hold the position that criminal sanctions should not be allowed. We are edging very close to that if we are detaining somebody for years.

[Mr Straw]

None of us likes the idea of closed proceedings or proceedings in which the evidence is kept from one of the parties. However, on the assumption that the court has decided that the evidence cannot be made available in open court because another individual, perhaps an informant or an agent, could be killed—I am not joking—what is the hon. Gentleman’s answer to this dilemma? Is it to leave the person at liberty or to do what used to happen in the past, which was that the Home Secretary would make such decisions without any proceedings? What is his alternative?

[Dr Huppert]

I think that it is the same as the right hon. Gentleman’s alternative would be in a criminal case for which the evidence needed to convict somebody could not be gathered. If one cannot gain that evidence, one cannot proceed. It is important that that applies when people are being deprived of their liberty. I made the same argument when we were getting rid of control orders. One must try to provide the evidence that is needed to convict people. Failing that, I do not like the idea that people are simply held for many years, with very little freedom. I believe that control orders had 23-hour curfews. That is an extreme infringement of liberty. I know that we are not discussing criminal issues principally, but there are many cases in the criminal system in which the police are sure that somebody is guilty, but they cannot find evidence that may be used in court. None of us would want to see such cases proceed and the same should apply to any other serious deprivation of liberty.

I look forward to the votes. It is not clear to me exactly which matters we will have the opportunity to vote on. I will stand by all the votes that I cast in Committee, where we came very close to changing the Bill, but never quite close enough. I think that we won one vote on a new clause being read a Second time, but the decision was reversed immediately afterwards by the Chairman’s casting vote. I hope that we will change the provisions either so that we do not have these proceedings, which would be my ideal, or we at least move them closer to the proposals of the JCHR. I accept that we should not keep every word of what the Joint Committee suggested and that tweaks could be made. I hope that the Minister will consider that at the point at which he confirms the position on habeas corpus and my other questions.

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[Paul Goggins]

The purpose of tabling amendment 70 —again, I am grateful for the support of hon. Members—was not that I thought I would win the day. Clearly, the Minister is not going to support it. I tabled the amendment to encourage him, the Under-Secretary of State for the Home Department, the hon. Member for Old Bexley and Sidcup (James Brokenshire) who is sitting next to him and anybody else who is listening. This issue will come back and either his Government or preferably a Government that I support, will have to deal with it.

[Mr Straw]

I am sure that my right hon. Friend is aware that the idea of having closed material proceedings was not just the policy of the previous Labour Government. Proposals were introduced, but sadly they were blocked in the other place.