Julian Huppert
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Proposed Europol Regulation
Julian Huppert Excerpts(10 years, 10 months ago)
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James Brokenshire
I hope to assure the right hon. Gentleman that we will be there, influencing and seeking to negotiate the measure. We may not be opting in at the outset, but that should not in any way, shape or form be taken as the UK Government’s not wishing to seek to influence the measure and create the changes that we believe are necessary for us to consider a subsequent opt-in, post adoption.
The right hon. Gentleman will want to congratulate Rob Wainwright, whom he spoke to on his recent visit, on the important job that he is doing to make Europol an effective, well-managed and widely respected organisation in the fight against international crime.
We can point to other examples. Operation Golf, which has been cited several times previously in this House, was a joint UK-Romania investigation team targeting a specific Romanian organised crime network. Offences associated with the network included human trafficking, money laundering, benefit fraud, perverting the course of justice, theft, and handling stolen goods. Europol provided analytical support and facilitated real-time checks on its systems, and 126 individuals were arrested in the UK. Europol’s help in Operation Seagrape led directly to the identification of bank accounts used by a people-smuggling gang based near Dunkirk. French, Belgian and British agencies worked jointly to target a specific organised crime group, and 36 arrests were made. It is for those reasons that the Government believe that it is in the national interest to seek to rejoin the current arrangements for Europol agreed back in 2009 as part of the 2014 decision. That was made clear in our discussions in the previous debate.
However, that is not the matter before us now. Instead, we need to decide whether to opt into the new regulation, which sets down new rules and powers for Europol and, we believe, would change its relationship with member states in some quite troubling ways. Our first concern is with the proposals on data exchange. The Commission wants member states to share more data with Europol. That is a good idea in principle; after all, Europol can only be as effective as the information it holds. However, a strong legal obligation to supply it with data, as proposed in the draft regulation, is a different matter. It would undermine member states’ control over their own law enforcement intelligence, which we regard as absolutely fundamental.
Even more worrying is the fact that the draft regulation does not exempt member states from providing information even if it could damage national security, or endanger ongoing operations or an individual’s safety. These protections are explicit in the existing instrument governing Europol but absent from the new proposal. That is a significant change. The proposal also strengthens Europol’s power to request investigations. It can already do this to some extent, but the new proposal creates a presumption that member states will comply with a request. It also strengthens their duty to give reasons if they decide not to do so. That is particularly worrying because any reasons could be subject to challenge before the European Court of Justice.
The European Scrutiny Committee has asked whether article 276 of the treaty on the functioning of the European Union would protect us from having a refusal challenged in the Court. We are not convinced that it would. Article 276 prevents the Court from reviewing
“the validity or proportionality of operations carried out by the police or other law enforcement services”.
It is highly debatable whether a decision to refuse to open an investigation would constitute
“operations carried out by the police”
because, by definition, no operation would have been carried out. We therefore do not think that article 276 provides enough protection against the Court’s involvement. This creates a real risk of the European Court being able to second-guess our policing priorities. That would simply be unacceptable. Policing is a core function of a sovereign state and it must remain a member state responsibility.
Dr Julian Huppert (Cambridge) (LD)
The Minister raises two concerns that I share to some extent. Presumably other member states have also had these concerns. What conversations has he had with them about whether other countries will be joining us to try to get this changed?
James Brokenshire
My hon. Friend makes an important point. Discussions have already taken place and member states have voiced concerns. Our certainty faces a challenge because, as I will come on to say, there is an element of risk with regard to what will happen, given that there is qualified majority voting and the European Parliament can make a co-decision. Given the significance of the issues, it is right that we wait to see what the final measure looks like before deciding whether to opt in. I think that that is the right approach, which is why we tabled the motion. However, as I told the Chair of the Home Affairs Committee, that does not mean that we will not engage in active discussions with member states, the Commission and others in order to seek to influence this measure as it is negotiated.
I have discussed the proposal personally with senior law enforcement officials from across the UK. Like us, the law enforcement community supports Europol as it is now, but the senior officers I spoke to agreed that our issues with the new text are real and serious.
On the Opposition’s amendment, the Government agree entirely that it is right to consult chief constables and law enforcement partners as part of this process. We have consulted senior law enforcement officers from across the UK, including the Metropolitan police and policing partners from Scotland and Northern Ireland. However, I ask the House to reject the amendment, because ultimately this is a decision for Parliament and the amendment does not contemplate Parliament coming to a view on whether we should opt in post-adoption.
Some hon. Members may argue tonight that we should opt into this proposal and negotiate out the elements that cause us concern. The problem with that is that the proposal is subject to qualified majority voting and we cannot guarantee that we would get the changes we need. We could quite easily be outvoted in Council, and then we would be bound by the final text, even if it contained elements we could not accept.
The Government are not prepared to take risks on something as important as this, which goes to the very heart of our law enforcement. We therefore intend not to opt in at this stage, but to remain fully engaged in negotiations and work with other member states and the European Parliament to push for the changes we need.
We know that member states and the EU institutions value our experience in this area. We have already had indications that others recognise our concerns and are prepared to work with us to try to find a solution.
We do not expect the regulation to be agreed much before the end of 2015. When it is agreed, we will consult Parliament on it again, depositing the final text with an explanatory memorandum, and, as this House knows from the handling of the human trafficking directive, we will be able to hold another debate at that time.
I stress that the Government’s position has no immediate implications for our participation in Europol. As I have said, we believe it is in our national interest to seek to rejoin the existing Europol legal instrument as part of the 2014 decision process. By doing so we will retain our full membership of the organisation throughout the negotiations, so nothing will change for the foreseeable future.
Mr Hanson
I can assure the hon. Gentleman that we wish to opt into Europol. I will explain our amendment in a moment. This is a take-note motion, and I want to put on record the Labour party’s view on these matters.
Europol has also dealt with investigations into credit card fraud, making 44 arrests this year in its investigation into a massive credit card fraud network, much of which was located in the United Kingdom. In answer to the hon. Member for Cheltenham (Martin Horwood), yes, Europol is a good thing, and we wish to remain in it, but we also wish to discuss with the Association of Chief Police Officers the question of how we can remain in it in a way that is effective for the coalition Government and for the United Kingdom.
Dr Huppert
That is very kind of the right hon. Gentleman, although I find it odd that, if he is so keen on opting in, he want to remove the bit of the motion that says we should opt in. My point, however, is why consult only with ACPO? He will be aware that ACPO is a private company limited by guarantee, so why not mention bodies such as the College of Policing, the Chief Constables’ Council or any other such bodies? What is the obsession with only the one entity, which is just a private company?
Mr Hanson
Perhaps the hon. Gentleman will allow me to make a case. ACPO does cover Scotland. There is ACPO Scotland and Northern Ireland ACPO—[Interruption.] If the hon. Gentleman would calm down for a moment and allow me to continue rather than chirruping from the Front Bench, he will understand why I am raising the issue of ACPO. It has made severe criticisms of the Government’s approach, which I will reflect on in a moment.
Europol’s director, Rob Wainwright, recently told the European Committee in another place:
“It is undeniable that the demands of fighting international crime and terrorism require an ever-increasing level of co-operation between the member states.”
In my view and in his, and—I am pleased to say—that of the Government and the Liberal Democrats, Europol is a welcome institution. Today, however, we are considering the four or so areas where there are extensions to Europol’s activity in the new documents, which include extensions
“to strengthen and clarify the obligation for Member States to supply data to Europol in order for it to analyse…the information;”
to establish Europol links with data already in possession of member states to consider how we can process that in an effective way;
“to merge Europol and the European Police College…into a single EU agency, located”
not in the United Kingdom as is currently the case in Bramshill in Hampshire, but in The Hague; and an increase in
“parliamentary scrutiny of Europol by the EU Parliament and national Parliaments.”
The House of Lords Committee said that it wished to retain an opt-in to the proposals for European regulation. To assuage the hon. Members for Cambridge and for Cheltenham, that is the Labour party’s position on this take-note motion. In my view, however, the question under debate focuses on the words “post-adoption”. The Government’s proposal in the take-note motion states that the House
“agrees with the Government that the UK should opt into the Regulation post-adoption,”.
We are saying that the Government should consult ACPO, although I accept that that potentially involves a wider consultation about why and how the post-adoption issue should be approached.
I have in my possession a letter to the Minister from Allan Gibson, Queen’s Police Medal, who is the ACPO lead on extradition and mutual legal assistance. In it, he mentions a number of the reasons why this motion in the name of my right hon. Friend the Member for Doncaster North (Edward Miliband) was tabled to tease out from the Minister his position on a number of key issues.
The letter was sent to the Minister last week and states first and foremost:
“ACPO regards the UK’s continuing membership of Europol as highly beneficial to the national interest.”
I agree, the Minister agrees, and Liberal Democrat Members agree with that.
The letter goes on:
“ACPO supports the sharing of crime related intelligence and information between Member States facilitated through Europol…this facility has been a vital part of the development of more effective law enforcement cooperation across Europe and has made it possible to bring more offenders to justice and prevent crime.”
Again, I agree with that; I am not sure whether the Minister does, but I suspect that the Liberal Democrats do.
The letter continues:
“information exchange must be undertaken with appropriate levels of security and UK law enforcement would be keen to ensure that we had the necessary safeguards in place to protect highly sensitive intelligence and operations.”
I agree with that, which is why the Minister needs to consult in detail with ACPO on these matters to consider how we can do this without—dare I say this to Liberal Democrat Members—necessarily doing it post-adoption. In my view, they are being sold a fudge. They are being told that they can sign up to Europol, but they do so post-adoption.
I shall argue that post-adoption is an area of key concern, and one that we need to flesh out, consider in detail and come to a conclusion on. ACPO continued:
“Our view is that Europol membership is far too important to the UK to put at risk and adopting ‘a wait and see post-adoption opt in if we like it’ policy would not be the right approach.”
That is the view of ACPO, whose role is to look after, defend and develop crime-fighting potential in the UK. It continued:
“Such an approach would forfeit our opportunity to be seated around the table to influence our partners directly for one of signposting the basis on which we would rejoin, i.e. if our conditions are met.”
That is a very severe criticism, and it sets out why we need to maintain Europol membership. These are real concerns being placed on the record: in a letter to the Minister, ACPO said that it does not agree with his approach of a post-adoption opt-in. An explanation is needed, and we have tabled our amendment to explore these important issues of national security and data sharing to the satisfaction of the House, ACPO and others. We do not want to give up our seat at the table, as the proposed take-note motion proposes, in order to achieve our ends.
I welcome the Liberal Democrats’ support for Europol. Their policy briefing document states:
“We must not expose Britain to attack from criminal gangs. Liberal Democrats will keep Britain at the heart of international crime-fighting measures such as…the European Police Office (Europol) that the Conservatives want us to pull out of.”
[Interruption.] Sorry, I missed that comment from the hon. Member for Northampton North (Michael Ellis).
Dr Julian Huppert (Cambridge) (LD)
There seems to be a wonderful outbreak of agreement about the value of Europol. I am not sure that all the Members who contributed to the last debate would subscribe entirely to that agreement, but certainly those of us who are here now do so, and that pleases me very much. However, wonderful as it is, Europol could be updated and reformed. I am glad that the Commission is proceeding with that task, and that we will see a new, improved Europol in 2015. I fear that the United Kingdom will be sidelined if we do not opt into the Europol regulation.
As I said earlier, almost half the 600 investigations that Europol is currently pursuing have links to the UK, and that is a huge factor for British policing. I will not list all Europol’s other wonderful merits, but I will make a connection with the last debate. I think it will have been an enormous waste of time, money and other resources if we decide to opt out of everything, then opt back into Europol in the negotiations leading up to 2014, and then get kicked out again in 2015. That strikes me as a very bizarre way of doing things.
Two key issues, which the Minister outlined very clearly, are data sharing and the proposal that would enable Europol to force the UK to initiate investigations. I do not think that those issues are as huge as some have made them out to be, but they have prompted concern, and it is right for us to deal with that. Data sharing is extremely important, but the changes that are being made are alarming. I think that many of the other member states would agree with us, and I suspect that neither of those proposals will be in the final version. Other countries will not want to share data when doing so could be too damaging. A certain amount of operational independence is necessary, and Britain should not break that principle.
It is always a pleasure to follow the right hon. Member for Leicester East (Keith Vaz). Like him—and, I believe, the other Liberal Democrats—I should prefer simply to remain at the table in order to be in on the negotiations at the outset. I think that if we had a full voting seat and could shape the future of Europol, we would win on the two points that I have mentioned and, I suspect, many others. However, that is not an option, so I am very pleased that the motion commits the Government to opting into the regulation post-adoption as long as the provisions relating to data sharing and the initiation of investigations remain. That strikes me as a reasonable approach which will ensure that we have the benefits of Europol and can continue to play a leading role in it, and I hope that our membership continues under the existing framework in the meantime.
I suspect that the amendment was intended to probe, and to that extent I understand what the right hon. Member for Delyn (Mr Hanson) was trying to achieve, but if he decides to press it to a vote, I shall strongly disagree with his decision. I hope that this is merely a probing amendment, for a number of reasons. First, the amendment deletes the part of the motion that
“agrees with the Government that the UK should opt into the Regulation post-adoption”.
I suspect that whoever drafted it—I am sure that the right hon. Gentleman would not have made such an error himself—meant to remove the words after “post-adoption”. As it is, however, I should much prefer the House to agree that we will opt in as long as the conditions are met.
Dr Huppert
It still worries me that the amendment removes that clear commitment.
I am also concerned about the role of the Association of Chief Police Officers. ACPO covers England, Wales and Northern Ireland, but specifically does not cover Scotland, which has a separate body, ACPO Scotland or ACPOS. The ACPO logo lists the three nations that it covers, but ACPOS is a different body. There are many other police-related bodies, including the College of Policing and Policing Matters.
I understand the right hon. Gentleman’s intentions, and I suspect that we agree about what we are trying to achieve. His amendment serves very well as a probing amendment, but, as I have said, if he presses it to a vote I will not support it.
Europol deals with about 13,000 investigations a year, and it is a huge help to us. I am very pleased that we will seek to remain in the new, improved version.