Victims and Courts Bill (First sitting)

The Committee consisted of the following Members:

Chair: † Dr Andrew Murrison

† Blundell, Mrs Elsie (Heywood and Middleton North) (Lab)

† Brash, Mr Jonathan (Hartlepool) (Lab)

† Brewer, Alex (North East Hampshire) (LD)

† Davies-Jones, Alex (Parliamentary Under-Secretary of State for Justice)

† Dixon, Samantha (Vice-Chamberlain of His Majesty's Household)

Fleet, Natalie (Bolsover) (Lab)

† Jameson, Sally (Doncaster Central) (Lab/Co-op)

† Jones, Ruth (Newport West and Islwyn) (Lab)

† McIntyre, Alex (Gloucester) (Lab)

† Midgley, Anneliese (Knowsley) (Lab)

† Mullan, Dr Kieran (Bexhill and Battle) (Con)

† Osborne, Tristan (Chatham and Aylesford) (Lab)

† Rankin, Jack (Windsor) (Con)

† Thomas, Bradley (Bromsgrove) (Con)

† Thompson, Adam (Erewash) (Lab)

† Voaden, Caroline (South Devon) (LD)

† Wood, Mike (Kingswinford and South Staffordshire) (Con)

Kevin Candy, Rob Cope, Committee Clerks

† attended the Committee

Sarah Hammond, Chief Crown Prosecutor for Mersey-Cheshire and CPS Victims lead, Crown Prosecution Service

Dame Nicole Jacobs, Domestic Abuse Commissioner

Baroness Newlove, Victims’ Commissioner

Katie Kempen, Chief Executive, Victim Support

Rebecca Bryant, Chief Executive Officer, Resolve

Charlotte Hamilton-Kay, Deputy Chief Executive Officer, ASB Help

Clare Moody, Police and Crime Commissioner for Avon & Somerset and APCC Joint Lead for Victims, Association for Police and Crime Commissioners

Assistant Chief Constable Genna Telfer, NPCC Victim and Witness Lead, National Police Chiefs’ Council

Public Bill Committee

[Dr Andrew Murrison in the Chair]

Victims and Courts Bill

09:25:00

Before we begin, I remind Members to switch electronic devices to silent. Tea and coffee are not allowed during sittings. Ordered, That— 1. the Committee shall (in addition to its first meeting at 9.25 am on Tuesday 17 June) meet— (a) at 2.00 pm on Tuesday 17 June; (b) at 11.30 am and 2.00 pm on Thursday 19 June; (c) at 9.25 am and 2.00 pm on Tuesday 24 June; (d) at 11.30 am and 2.00 pm on Thursday 26 June; 2. the Committee shall hear oral evidence in accordance with the following Table:

Date	Time	Witness
Tuesday 17 June	Until no later than 9.45 am	Crown Prosecution Service
Tuesday 17 June	Until no later than 10.25 am	Domestic Abuse Commissioner for England and Wales; Victims’ Commissioner for England and Wales; Victim Support
Tuesday 17 June	Until no later than 10.55 am	Resolve; ASB Help
Tuesday 17 June	Until no later than 11.25 am	Association of Police and Crime Commissioners; National Police Chiefs’ Council
Tuesday 17 June	Until no later than 2.40 pm	The Suzy Lamplugh Trust; End Violence Against Women Coalition; Women’s Aid Federation of England
Tuesday 17 June	Until no later than 3.00 pm	Justice for Victims
Tuesday 17 June	Until no later than 3.20 pm	ManKind Initiative
Tuesday 17 June	Until no later than 3.40 pm	HM Prison and Probation Service
Tuesday 17 June	Until no later than 4.00 pm	Ministry of Justice

3. proceedings on consideration of the Bill in Committee shall be taken in the following order: Clauses 1 to 3; Schedule 1; Clauses 4 to 5; Schedule 2; Clauses 6 to 12; new Clauses; new Schedules; Clauses 13 to 16; remaining proceedings on the Bill; 4. the proceedings shall (so far as not previously concluded) be brought to a conclusion at 5.00 pm on Thursday 26 June.—(Alex Davies-Jones.) Resolved, That, subject to the discretion of the Chair, any written evidence received by the Committee shall be reported to the House for publication.—(Alex Davies-Jones.) Resolved, That, at this and any subsequent meeting at which oral evidence is to be heard, the Committee shall sit in private until the witnesses are admitted.—(Alex Davies-Jones.)

09:26:00

Examination of Witness

09:27:00

Before we hear from the witness, do any Members wish to make a declaration of interest in connection with the Bill? If any interests are particularly relevant to a Member’s questioning or speech, they should declare them again at the appropriate time. We will now hear oral evidence from the Crown Prosecution Service. We must stick to the timings in the programme motion to which the Committee has agreed. For this session, we have until 9.45 am. Could the witness please briefly introduce herself for the record? Sarah Hammond: Good morning, everybody. My name is Sarah Hammond. I am the chief Crown prosecutor for the CPS in Mersey-Cheshire and the CPS national lead for victims and witnesses.

Q I am Dr Kieran Mullan, Committee member and shadow Justice Minister. You will be aware that at least part of the Bill aims to make changes to how the unduly lenient sentence scheme operates. Can you explain what, if any, role the CPS currently has in challenging or referring cases where it feels that the sentence is unduly lenient? Sarah Hammond: The CPS looks at every sentence that is imposed to see whether, in our view, it is potentially unduly lenient. If we identify that a case is potentially unduly lenient, we would ask for some advice from the prosecution counsel who appeared in the sentencing court. We would read that, and, if we still felt that the sentence was unduly lenient, we would put together a package of papers to send to the Attorney General’s office for consideration.

Q There have been reports of victims of crime and their families not even necessarily being aware of the existence of the unduly lenient sentence scheme. Does the CPS have a role in ensuring that there is a good awareness of the scheme, at least among victims and their families, and, if so, how effectively do you think you are playing that role? Sarah Hammond: Currently the responsibility for informing victims of the sentencing outcome from the hearing lies with the police witness care unit officers. Having said that, if there are questions that the witness care unit officers cannot answer then under the victims code they can refer the matter back to the CPS. We would then happily speak to the victim, explain the unduly lenient sentence programme, and signpost them to where they can access that and the steps around it. We have a guide for victims once they come into the criminal justice system, to explain what happens when a case comes to the CPS, and there is a section within that about when they feel a sentence is too short. We also have a presence in court at the sentencing hearing so, where possible, either prosecution counsel or a member of the CPS can speak to the victim about the sentence and answer any questions they have about potential challenges.

Q You will be aware that there is a 28-day time limit on the ability of anybody, including victims and their families, to appeal a sentence, given your experience of working directly with victims and their families around that crucial period. I have heard that it is not appropriate to expect a victim and their family to manage, consider and make an appeal during that 28-day window, considering some of the momentous events that might be happening to them during that period. Does the CPS have a view on whether a wider timeframe for victims and their families might be beneficial, based on your experience of working with people who are deeply traumatised at that point in time? Sarah Hammond: I am aware that the Law Commission is looking more widely into potential reforms of the law and criminal appeals.

Just to make you aware, the Law Commission’s current consultation paper says that it does not recommend any change to that time period, so I am interested in your views on that question specifically. Sarah Hammond: Okay. A timescale of 28 days is challenging, but at the moment we feel it works quite well. As professionals within that environment we are well used to obtaining the information we need with a sense of urgency. There are quite good mechanisms in place. That said, if there is evidence that extending the timescales would make the process smoother or more efficient and give people who, as you say, probably have other things on their minds than appealing sentence the ability to do so, then the CPS would support that.

Q Moving on to victim personal statements, commonly referred to as victim impact statements, I have heard directly from victims and family members that they are sometimes told to remove things from these statements that they would like to say—for example, personal remarks directed at the offender. The CPS plays an important role in working with victims and their families on those statements. Have you seen examples of the CPS advising that statements need to be changed? Sarah Hammond: I have not personally. I could make some inquiries into how often that happens and we could happily write to the Committee with some more detail around that.

Q Thank you. One of the amendments that the Opposition are tabling would introduce a greater freedom for victims and family members to speak more freely in their victim impact statements, with the proposal that the judge makes the choice of distinguishing between what is or is not relevant to sentencing. Would the CPS, in your branch at least, have any objections to allowing victims greater freedom to say what they would like at sentencing hearings? Sarah Hammond: I think we would have to look at what the extent of the legislation is, but we would be happy to work together with the Government in relation to that.

Q Thank you, Sarah, for coming to give evidence to us today. How do you think the measures currently in the Bill will help with the prosecutorial capacity issue that we have at the moment? Sarah Hammond: We welcome the focus in the Bill on broadening the pool of professionals who are eligible to become crown prosecutors. Recruitment can be challenging. It is a competitive market out there, so I think measures that broaden the pool of people from which we can recruit will be really helpful. We have other measures in place that will assist with the recruitment of crown prosecutors. We have just launched a scheme called Go Prosecute for senior crown prosecutors, aimed at professionals who have perhaps stepped out of criminal law practice for a while for various reasons. We would offer them a 12-month contract, with a view to extension, to come back into the field of criminal law practice and would support them to do so.

Q What do you see as being the future benefits of having extra capacity within the CPS as a result of the measures in the Bill? Sarah Hammond: It will allow us to recruit. We were very pleased with the settlement that we received in the spending review, which gives us the capacity to take the legal workforce to the levels that we really need to be able to prosecute cases effectively. The measures in the Bill will also allow for a more diverse workforce. It will allow people who have perhaps had different experiences and backgrounds in the profession to become Crown prosecutors. As a whole, I do not think it can solve all the problems with backlogs and delays, and there is a duty on everybody in the justice system to ensure that we are maximising productivity and efficiency as well within the systems. We have just started a programme of continuous improvement, and I know that it is a priority for the Director of Public Prosecutions personally. We are looking at all our systems and processes to make sure that we are stripping out any inefficiencies and waste.

Q You mentioned the Law Commission review of the unduly lenient sentence scheme. How important do you feel it is that we let the Law Commission complete that before we make any changes to the ULS? Sarah Hammond: It is important to get a wide range of evidence. I have been working in the CPS for 27 years, so I have seen only one side of it, and there will obviously be lots of different aspects. As I said, if there is that wide body of evidence that suggests that people are being disadvantaged by that timescale, it is important to get all the information around that before any decisions are made.

Q Which areas of the Bill, if any, do you think will pose challenges for the Crown Prosecution Service? Sarah Hammond: As always, there is a collective challenge when a Bill becomes law just to work out how things will work in practice and how implementation will work. Take the restriction on parental responsibility. It will be important for the CPS to work with the Government, police and local authorities to obtain the relevant information about evidence of parental responsibility and put that before a judge to make the decision without causing any further delays in the system. Once the Bill becomes law, it is a case of working through some of the processes to make sure that the implementation is smooth and we have those clear processes in place.

Q What impact do you think broadening the potential pool of prosecutors will have on the backlog in the court system? Sarah Hammond: It will enable us to recruit more. As I have said, it is quite a competitive market out there. There will be more people eligible to become Crown prosecutors. That will include people who are qualified under the provisions relating to the Chartered Institute of Legal Executives. We also have a number of associate prosecutors who have worked for the CPS for many years and have great experience. However, I do not think that is the complete solution to it. While we can possibly recruit more Crown prosecutors, a system-wide approach is needed to tackle those backlogs and delays and give justice for victims.

Q Do you not have any concerns about the quality of the service if you are widening the pool to people with other qualifications? Sarah Hammond: There is a balance between ensuring that we widen the service and not letting professional standards drop. We have a very comprehensive induction and training programme for Crown prosecutors. They have a 12-week induction programme when they join us. For those who join us who perhaps do not have experience of criminal law or have stepped out of criminal law for a while, there is also a separate course that serves as a refresher into the basic principles of criminal law. I am happy that there are some safeguards and training in there to ensure that prosecutors are of the standard we require.

Q I have two questions. The first relates to queries raised around the associate standard, for which you are looking to recruit. Are there any minimum standards that you would look for in any candidate for the new associate roles, and what is the current vacancy rate at the CPS that we need to fill through this? The second question concerns private prosecutions. Do you think there will be any potential impact on the CPS in terms of an increase in the use of private provision and prosecutions? Sarah Hammond: If I may, I will take the first question in two parts. I do not have that figure on the current recruitment rate with me today, but we can write in and let you have it. On minimum standards, we would have an interview process for people to become Crown prosecutors. There would be minimum standards for people to pass that interview stage, and we would not lower them just because we are broadening the pool of Crown prosecutors. It is important that professional standards do not slip. I am not aware of any reason why private prosecutions would increase as a result of the particular recruitment issues, but if that is problem, obviously we will look into it, and work with our colleagues on that as well.

Q A quick question: would you support the publication of sentencing remarks to support transparency, and to enable victims to reflect on what was said in court? Sarah Hammond: Ultimately, that is a matter for the Government. There is clearly an argument for victims to be able to see that justice has been done. It will also potentially help with appeals for unduly lenient sentences if victims are able to access the sentencing remarks, so they can see the basis upon which the sentence has been passed.

If there are no further questions, I thank the witness for her evidence this morning. Examination of Witnesses Dame Nicole Jacobs, Baroness Newlove and Katie Kempen gave evidence.

09:42:00

Q We will now hear oral evidence from the Domestic Abuse Commissioner, the Victims’ Commissioner and Victim Support. Again, we must stick to the timings in the programme motion to which the Committee has agreed. For this session, we have until 10.25 am. Could the witnesses please briefly introduce themselves for the record? Katie Kempen: Good morning. My name is Katie Kempen, and I am the chief executive of Victim Support, the leading victims’ charity for England and Wales. Baroness Newlove: Good morning. I am Baroness Newlove, the Victims’ Commissioner for England and Wales. Dame Nicole Jacobs: I am Nicole Jacobs, the Domestic Abuse Commissioner for England and Wales.

Q I am Dr Kieran Mullan, the shadow Justice Minister. I should say for transparency that I have had the opportunity to meet Katie and Baroness Newlove to discuss some of the matters before us today. I will begin by asking a question to all three witnesses. Do you think that the current 28-day time limit for victims and their families to appeal an unduly lenient sentence is sufficient, or should victims and their families get more time? Baroness Newlove: I welcome the fact that there is an extension as such, but the 28-day limit has not changed for the victim, and that is the worry. The extension is more in the backroom. I agree with it, because I do not want things to be rushed, but the limit has not changed for the victim, which worries me. Victims really do not know this information; it will be mentioned only if the prosecution lets them know about it. Once they leave the courtroom, it can take a long time, but the clock is ticking. Really, that is the crux of why we have mentioned this. Nobody understands undue leniency in the first place, and it is then for the victims to look into it. Also, at the end of the 28-day process, I have had victims put a request in, but the box has shut at 5 pm, and that is it. I think that is quite cruel to a victim as well. I think the limit needs to be a lot longer to give them time to absorb the sentence and understand it. When I say longer, I am thinking six months, because we give plenty of time to an offender, who has a legal advocate all the way through. I speak personally on this issue. I can assure you that it needs to be looked at again. Dame Nicole Jacobs: I would echo that. I am stating the obvious, but with victims—certainly through the lens of domestic abuse—you have to appreciate some of the dynamics of coercion and control, including isolation from family and friends. Often, a lot of information is unknown and comes to the attention of friends, family and victims in different ways. There is so much there that has to be unpicked and understood. I know we will go on to talk about this, but certainly support for victims throughout the criminal justice system, really needs improvement. It comes down to the most basic understanding of who is who, and what your rights are. That was the whole point of the Victim and Prisoners Act 2024, and this Bill is about improving on that. It is really true how disorienting the system is, and we need to do so much more to put in place solid advice and support for victims. Those 28 days seem to fly in the face of that. Katie Kempen: We would also support an extension. Our experience of working with victims who have gone through court is often that the process traumatises them and they need some time for decompression. They need time to speak to their advisers or advocates. We know that victim services are under pressure. Our advocates will be carrying other caseloads as well. From our perspective, to give the victims time to understand and process what has happened to them, and to be able to access the support and guidance that they need, 28 days is really difficult to work within, so we would support an extension. We have no issue with the extension that is within the Bill. We support that.

Q I want to move on to questions about the victim personal statement, commonly referred to as a victim impact statement. I know we have discussed this, and there is widespread reporting that it has been suggested to individuals that they have to make their statements say different things and not necessarily criticise the defendant, even though they have been convicted and are guilty at that point. We have put forward an amendment to try to remove those curtailments on what victims can say in their impact statements. Do you have experience of victims being told they cannot say what they want, and would you support us doing what we can to reduce those restrictions? Baroness Newlove: Again, from personal experience—after 17 years, and still going through the criminal justice system—I think that, once a person is convicted, you have to consider the whole environment of what the victims and families have sat in. I sat for 10 weeks in a courtroom, listening to everything, and I think we need to understand that the victim personal statement—I prefer “impact statement”, to be honest; it was changed under Gordon Brown—is their right to have their say. I do not think there is the right to keep redacting. I am now a bit concerned because I am hearing that it is a piece of evidence, so they have got to be careful what they say. In all the years that I have been working in this area, I have never heard that before. For me, it is about having that voice—for example, hearing about somebody who has been brutally murdered. It is their opportunity. I am going to look further into this, as Victims’ Commissioner, but I think it is a right for the victims. It is in the victims code; it does not have any caveats. I am very concerned to hear, when we meet victims, that something has been redacted three times, or taken out three times. There needs to be more evidence about this and how they are treated. These are the most appalling crimes, and I do not think it is acceptable. Otherwise, victims are just going to say, “Why bother?” The championing I have done over 13 years has been to ensure that the victim impact statement is the voice of the victim, which has been silenced all the way through. Katie Kempen: The addition from our perspective is that the victims we support, by and large, find the whole process quite confusing, and they need support to get through it. We would welcome clear guidance, clear information and respect for the victim’s right to have their voice heard, in so far as is possible. Dame Nicole Jacobs: I would agree. A lot of these answers are going to come back to the same principles: one of the things that we have not achieved is clear support for victims, end to end. There are contracts, or bits and pieces—I am sure Katie can speak to this—that are parts of the process. However, all those things feed in to one another. The victim impact statement is an example of where victims often do not understand what their rights are. They do not understand who to speak to if they are being told something they feel is unjust or they do not agree with. We could do so much more. One gap in the Bill that I wanted to mention concerns wider support for victims, in terms of building community-based support that could start at a much earlier point in the criminal justice process. In the context of court delays, court backlogs and the sentencing changes afoot, this is a critical piece of legislation that could address some of those gaps. That would help victims very much, end to end. Some of the examples of injustice that we pick out would be much more comprehensively addressed. That is one of the things I would encourage you all to consider.

Q I want to ask about the requirement for defendants to attend the sentencing hearing. I have spoken to victims who are quite robust in wanting to see that implemented, even if a defendant is disruptive. We have tabled an amendment to give a judge an explicit right to restrain and gag a defendant if necessary. We have also said that, if a judge is minded not to compel a defendant to appear, or not to restrain them rather than have them removed from court, victims and their families should be consulted about that decision. If they are not going to be there, at the very least a judge should hear clearly the views of victims and families. Would you support a measure that ensures they are consulted? Would you support measures that say, if the victims support it, and it means the defendant being there restrained and gagged, we should consider it? Baroness Newlove: First and foremost, you need to consider what the victims and families have gone through—the whole context. This is just one part of it. I am nervous when you focus on one section and do not look at the environment. Victims and families are sat in the courtroom for many months. They have listened to everything. They may have given evidence via the defence. They have a prosecutor that is not for them, but for the state, and may have let them down. This needs to be viewed in its context. I have always said that I wish judges would own courts, because defendants run them ragged. I have been to many courts over the years, and when you get a good judge, you really get that. We are also talking, however, about families who do not understand the judiciary or the language. There needs to be a part of the hearing, when the defendant has been convicted, to say, “We need to speak to the families.”—but do not just do it on the day of the sentencing; give them the opportunity to digest, as you would with the defence and legal arguments, when nobody is allowed in. That could be private, where nobody comes in. It is important to recognise the whole context. If the defendant is not there, put TV screens in the prison cell. When I worked in the courts, I went to prison cells when defendants would not come down, and we have been up and done that. It is about controlling the environment but, more importantly, it is for the victim, because the defendant seems to control this, which is so wrong when they have been convicted. We need to train the judiciary how to do this, and it is not going to be favourable to one side. Victims only get this time after the whole process, and I am concerned that they will not have the opportunity to digest it. They are emotionally drained and I think it could be rushed too quickly. Dame Nicole Jacobs: I agree with that. Katie Kempen: Building on that, there is a need for a holistic exploration of what victims experience in the courtroom. Our report, “Suffering for justice”, referenced long waits for sentencing hearings and not being able to access special measures. The reality for victims in court is that they are standing outside court with the offender’s supporters and family, that they have to sit in the public gallery, and that they clearly feel they are being intimidated when the sentencing remarks come through. We welcome the sharing of the sentencing remarks with victims, ensuring that they understand the impact of them. We agree that the victims’ voice needs to be at the centre of any sentencing hearing. Some victims may well want the offender to attend. In other cases I have attended, I have seen young people give their victim personal statements against people who have abused them, it was very difficult for them to be able to see the offender. I really feel that victims’ needs should be taken into consideration so that they feel they can have their say in that environment. Baroness Newlove: May I just add something important? When offenders have been acquitted, as they were in my case—I say this because this is how it feels—the offender’s family may be in the public gallery. My family had to have police protection. It is about the environment in that sentencing court. It is not simplistic. I hope that the Government take on board the fact that there is all that going on: you having to digest a very important, very technical decision while you are being goaded and having to be protected.

Q A final question from me. I am conscious of time, so I will direct this question to Dame Nicole because of your particular expertise in domestic abuse. You will be aware that the Bill introduces a duty on the court to make an order to remove parental responsibility in respect of any children for whom an offender has parental responsibility, if they have been sentenced to four or more years. We have laid an amendment to suggest that provision should apply if an offender is convicted of an offence against any child, not just a child for whom they have parental responsibility, and to any offender who has a custodial sentence. Which do you think is the preferable approach, or, more generally, what are your views on removing parental responsibility for those convicted of child sex abuse? Dame Nicole Jacobs: I am very aware of dysfunctions within how domestic abuse is understood in the family court. It is positive to clarify to the court that, with certain offences, allowing parental responsibility should be considered inappropriate. Even saying that, though, I am a bit cautious about a completely black-and-white approach. I agree with the provisions in the Bill, but you would have to think very carefully about the range of other offences—for equivalent convictions against other children, absolutely, but I do not know enough about what is being proposed in terms of the range of other offences. While we are on the subject of family court, one of the long-standing clarifications needed from Government is about a presumption of parental involvement. The Government were looking into that literally years ago, when I was first appointed as a designate, and it has not been resolved. That should be either clarified through this legislation or just clarified full stop. In the family court, the welfare checklist in the Children Act 1989, which is adequate in considering the safety of a child, is often confused with a presumption of parental involvement. I believe that the safety of children, who are recognised as victims in their own right in the Domestic Abuse Act 2021, should be paramount.

Q Thank you all for coming to give evidence to us today. Going back to non-attendance at sentencing hearings, what impact will compelling perpetrators to attend their sentencing hearings have on victims and their families, and will giving the judge—for the first time ever—the ability to issue sanctions on them once they are in prison make a difference in terms of helping victims and families feel that they getting justice? Dame Nicole Jacobs: As Baroness Newlove said, it depends on the victim and the family, and the context of the situation. For many people, it would be heartening to feel that there is an ability to compel someone to come to court to hear their sentence and the consequences of their actions, which have devastated the lives of those people. But I could also imagine, especially in the context of domestic abuse, situations in which the victim, or their family if they have been murdered, would find some of that difficult. You would have to understand those dynamics. In the context of domestic abuse, for example, there could be a very clear notion that that would be the just thing to do. There could be another example where, because of the nature of the family—keep in mind that for domestic abuse, I am looking through the lens of the fact that the victim and perpetrator are very well known to each other; that is not the case for all sorts of other crimes—there could be dynamics that are more complex. That is why what both Katie and Baroness Newlove have said, about understanding that the victim and families will feel confident and engaged and able to speak, is really important. We must also keep in mind, especially with domestic abuse, that there could be family members and people involved as victims who have radically different views. Again, there is a complexity to this that does not necessarily always come through in a very black-and-white provision. Baroness Newlove: Again, I want to support the family. The decisions we are making here are for the professionals to make the courtroom run seamlessly, but it could happen instantly—if the defendant just does not come down, how are we going to manage the emotions on the day, as well as the emotions they have gone through on the journey? I really want to make sure that they are supported. I see that there is going to be a penal order in prison. I could go on a bit about that myself, but I will not—that is out of scope. I welcome that provision, but am also concerned about how it is managed. If the governor of the prison sees that that is going to be detrimental to their health and wellbeing, it might not happen, and so then where is the transparency about that being delivered for the victim? I think we need to do further work and look at that, because there is very little communication to victims. Nobody knows what they do in prison. Victims are told what they are doing, but they get very little information. For me this is a step forward, but what happens at the end of the day is far more important.

Q I will come back to you, Baroness Newlove, and then I would like to bring you in on this, Katie. In the Bill, we are introducing a victim contact scheme with, for the first time ever, a dedicated helpline for victims and survivors to get that information. In relation to your report, Dame Nicole, we know that many offenders for domestic abuse get less than 12 months of custodial sentence, which makes them ineligible for the contact scheme. For the first time ever they will have a helpline that they will be able to call. What difference will that form of communication that we are bringing in with this Bill make to victims and survivors? Dame Nicole Jacobs: I cannot underscore enough how important it is for this gap to be filled. It is exactly as you say; there are so many victims who, if they do not meet the criteria of the victim contact scheme, are literally not in the frame for any advice or support. Yet there are all these changes, whether that is an early release or just any information at all, such as the conditions of release. I get these calls at my office—I am sure we all do. They are very hard to problem-solve through; you have to find the right person within probation who may be able to tell you, and it is a huge gap. I am really pleased about the provision adding offences to the full victim contact scheme, such as coercive and controlling behaviour, stalking and harassment. That is really welcome. More people will be eligible for the victim contact scheme. I remind you of what I am told by probation—that victims who are eligible for the scheme do not always have contact because some of the contact details are lost or the fact that they are eligible for that scheme is maybe not known to them. That brings us back to the same theme: where is the end-to-end support for victims? I think a helpline will really fill a gap. My question about the helpline is whether the resource is adequate. That is a question that needs to be answered, or at least there needs to be an iterative process, where we can see that and build on it. My guess is that the helpline will start feeling very much like casework. It will not be as simple as victims calling and saying, “Can you tell me some information?” or an advocate calling on their behalf. They will want to then say, “I do not think these conditions are adequate”, and they will have a lot of questions. There is a lot of logistics behind the scenes that I worry about, and whether they will have the access to the information they need. I am sure I should hand over to Katie and Baroness Newlove, who see a lot of this happening too. The answer is yes; it is great to have the helpline, but there is a question mark in my mind about the resourcing and whether we will quickly learn that there is much more need for a caseworking approach. Certainly, the biggest gap remaining for me is victims whose offender is in prison for something that is not a domestic abuse-related crime. That is the biggest difficulty in all this. Very often—say if it is a drug-related crime—it has “nothing” to do with domestic abuse, but they are a known perpetrator, and those victims need to be able to access the line.

Q Before you come in on that point, Katie, obviously you will be aware of the new domestic abuse flag that we are bringing in as part of the sentencing review, so that will be possible in future. Dame Nicole Jacobs: I am very pleased about that. It is a big step forward. Katie Kempen: I agree with Nicole. We support the extension of the victim contact scheme, and we think it is hugely valuable to have that access to information—victims tell us that all the time. As has been said, in the last year or so, it would have been an invaluable resource for victims to be able to access. On Nicole’s concerns about resourcing, as an organisation that runs a helpline, I would say that up to £200,000 for the helpline feels quite optimistic. The operational challenges that we bump into include that people are often in mental health distress when they access these contact lines, so the calls take longer and you need your staff to be trained in safeguarding, data protection, referrals and so on, which all takes time and investment. The other element from our perspective is the knock-on impact this will have on victim services. It is estimated that the phone call will last about 28 minutes, and we will then need to pick it up and explain to the victim what their rights are, where they can go from here and where they can get further information. Undoubtedly, we will need to give additional emotional support—the phone call is likely to be quite traumatic for them. We need to see additional investment in the victim services that will be picking up the additional demand that comes from the scheme, although I would say it is a hugely welcome step forward.

Q What do you think will be the impact of the new definition of “victim” for the purposes of the victim contact scheme? Katie Kempen: We think it is clear and makes it quite accessible. From our perspective, if possible, we would like to see the eligibility for the victim contact scheme to go to all victims of domestic abuse. As Nicole mentioned, a person might not be convicted of a DA-related offence, but there is none the less an impact on the victim. You have referred to flagging as part of the sentencing review, and we think that could help. Where possible, we would like to see it extended. However, it seems as though the reforms will make it easier and clearer for victims to access support information. Baroness Newlove: I agree. Dame Nicole Jacobs: I would just underscore for the Committee that the inclusion of children is very important. I recently published a report on children, “Victims in their own right?”—that question mark was on purpose. One aspect of the report was mapping 700 services for children in England and Wales, and the fact that one in five say that they do not have adequate funding, which had led to curtailment. If I had to name one of the largest gaps we have in victim services—I would say there are gaps across the board—it is the huge gap in relation to children. That goes back to this continual theme. Under the Victims and Prisoners Act, we have the duty to collaborate. I was a huge champion for that, and I am now very involved in its enactment, but it does not create any new funds for services for victims; it says to local areas, “You have a duty to collaborate on the funding streams that currently exist”. I would say that a huge gap in this Bill is a duty to fund community-based services. Without wishing to embarrass Katie by talking about the incredible work that is done by Victim Support, there is a range of services that are the foundation of support for victims. They do not sit in core budgets like other kinds of public services do. That is one thing we have to fundamentally address for victims to have that kind of end-to-end support. I will not labour it any more, but I have to point out the biggest gap. It is great to have children defined, but what does that mean? Katie Kempen: The reality for us is that the budgets for commissioning services are being cut, so the services that we can provide are being cut. The increase in national insurance contributions has obviously hit the sector really hard as well. We support all this work to improve the victim experience, but it needs to go hand in hand with a well-resourced victim sector that can take victims from the point of the crime occurring—even pre-charge and pre-contacting the police—right to the end of the criminal justice process. Baroness Newlove: Can I bring it back to the information for victims? The one thing I am really concerned about is the importance of what information is given to victims, because it is very patchy. They are being told, “We cannot tell you whether the offender has been released”, and they cannot be told where the offender lives or what the offender knows about their exclusion zones. I truly welcome the fact that we will hopefully turn it into a restriction zone, because I have mapped my life out, and I have three offenders who know exactly where I am. More importantly, the information takes too long and is very clunky. The victim liaison officer tries to do as much as they can, but I think this is an ideal opportunity—I am looking at the Minister—to let the victim know that, if the offender has been released, he does not live in the area; he lives 300 miles away. That gives comfort. I have met a victim who is petrified that the offender lives near her, because nobody will tell her where the offender is. We are not saying police must pinpoint where he is, but, if that offender lives 300 miles away, she can at least go out the door and go to the shops without feeling that he will be around the corner. That is really important. Why are we nervous about sharing information about offenders when offenders can know a lot about victims?

Q Good morning to you all. Baroness Newlove, you published a report last year on the experiences of victims of antisocial behaviour. To what extent do you think the Bill’s antisocial behaviour measures meet the recommendations of your report? Baroness Newlove: Antisocial behaviour is my drum. I absolutely welcome that the commissioner is now able to explore the treatment of victims of antisocial behaviour—I have been going on about that for many years—but there are still challenges that victims face. I really like that it will allow an investigation of how the housing agencies and associations treat victims, because it is like ping pong with these housing associations—I welcome that. I challenged the Victims and Prisoners Act because victims should expect to be entitled to the right support under the victims code. Victims of persistent antisocial behaviour should fall under the victims code. Trying to get people to understand the impact of antisocial behaviour as a crime—and it is a crime—is all down to how much the victim reports. That is where we need better understanding. I also want a statutory threshold for ASB case reviews, and I want an independent chair for ASB case reviews, because I am tired of agencies marking their own homework. More importantly, I want the victim to be able to go to this, because you are talking about them and the impact on them, yet they are not invited. For me, that is really important. I welcome anything for antisocial behaviour, and I would like the Government to look at the report’s recommendations and see what else we can add.

Q Do you support the publication of sentencing remarks in the interest of transparency, supporting victims and their families, and wider public confidence in seeing justice delivered? Baroness Newlove: I certainly do. The media give out information, and I have learned more about my sentencing remarks because I never got them until very long afterwards. Every victim, not just those of sexual crimes, has a right to see those sentencing remarks, because it gives them time to digest. You leave the courtroom thinking that you know everything, but as your memory and emotions come, you start asking yourself questions. Sentencing is very technical: you hear a sentence, then it is reduced if they have been on remand—there are boxed-off things. Also, as I found out, there are tariff reviews for juveniles, which even the probation service was not aware of because there are very few of them. If you look at the crime rate, you will see that we are getting younger offenders in prison. We have to prepare families for the tariff review, which means that offenders go to appeal to reduce their tariff, so you go through that. It should not simply be a case of saying, “There are the sentencing remarks.” There are implications, and every victim has a right to see the sentencing remarks. It is about them, and it affects the decisions about what the offender will do, and it should be the victim’s right to have that information. They do not have any advocates to speak for them, and the prosecution pursue their own case. If the media can get things out there, why can we not give it to victims and families? Katie Kempen: From our perspective, accessing sentencing remarks is an issue for victims. They would like to be able to access them. We welcomed the pilot and its continued roll-out. I have a nuanced response because victims’ needs differ. If there is to be wider publication, we need to see whether any protection is needed for individual victims, rather than carte blanche, “Yes, publish them all.” A key issue is explaining the sentencing remarks to victims. Again, in our “Suffering for Justice” report, where victims did not have the sentencing remarks explained to them, it caused them real anguish and distress. They should be able to have the sentencing remarks explained to them, and where they do, it helps their recovery journey and brings closure. My answer is yes, with some nuance. We need the explanation, and we need to treat the victims like a human being who has gone through a traumatic experience. Dame Nicole Jacobs: I agree.

Q We have talked a great deal about the changes in definitions around victims. We have also talked about the role of social landlords. Is not one of the challenges in implementing this Bill making the many stakeholders that come into contact with victims clear that they are dealing with a victim, and them knowing what a victim is and what their responsibilities are once they realise that? Katie Kempen: Yes. Particularly when looking at antisocial behaviour, we absolutely welcome the additional powers for the Victims’ Commissioner. Brutally, the Victims’ Commissioner knew what the issues were surrounding antisocial behaviour—the last time she was in office, she wrote a fantastic report that has still not been fully implemented and enacted. At Victim Support we would like to see an ASB charter so that victims of antisocial behaviour have clarity on their expectations and rights, and on the responsibilities of each organisation. Victims are far too often ping-ponged between different organisations. They do not hear their rights in terms of the reviews. As Baroness Newlove has said, there is a cohort of victims who slip through the net in accessing victim support services. Their case may not reach the criminal threshold that gets them to victims code rights, but they are still finding that their lives are essentially ruined by antisocial behaviour. Those cases are complex, difficult to resolve and take significant advocacy. We need some clarity on rights and responsibilities in that arena. Baroness Newlove: I add a request to get rid of the term “low level.” The police start by thinking that antisocial behaviour is low level, and if you train your police officers with that narrative, they will not give respect to victims. Antisocial behaviour is horrendously violent to the individual. For my last report I met victims whose houses were nearly burned down, but the local authorities never came. I have met a victim of arson against their car, which nearly murdered the family because she was sleeping on the sofa—the police never came out, but the fire officers sat there for two hours. We have to get away from looking at antisocial behaviour as low level, because it is the route for violence upon violence. I do not want to talk just about me, but my husband was murdered. Before that, it would have been treated as antisocial behaviour. If he had lived, it would have just gone through the system. If you leave antisocial behaviour, it is like a cancer; it will spread and spread. That is where it helps communities, if you really want to get to the nub of all this. As Victims’ Commissioner, I am delighted about being able to go to a housing provider, but you are quite right about the implementation and accountability. This is going to take many attempts, but it has to start with the police to stop the ping-ponging. There is a human there who is feeling suicidal. You will act if they take their life, like Fiona Pilkington or David Askew did, and that is too little too late.

There are three people on this panel. Please be focused.

Q I have a question for Baroness Newlove, in the first instance. I understand that there are new measures in the Bill that allow you to look into individual cases for the first time. Is that something you broadly welcome, and how do you envisage that working? Baroness Newlove: I broadly welcome it, with a bit of a caveat, as I am the victims’ champion. Currently, I have to explain to every victim who writes in that I cannot get involved in individual cases under the statute. That is not to say that I do not pass on the information to Ministers and ask them to help and support. I am very concerned about how we may class victims under two tiers, and that is what we have to look at—it will not be me, but the future Victims’ Commissioner. I receive hundreds of letters, even in the House of Lords, and I am trying to separate them using three criteria. First, does the correspondence highlight a gap in the policy? That is about a victim’s right to a review, and if it is not right, I raise it with the Minister or the Attorney General. Secondly, does the correspondence highlight a failure to deliver in line with policy? I see cases that seemingly meet the ASB case review threshold, but the local authority has added further obstacles, which does not help. Thirdly, and finally, does the correspondence highlight policy that perverts outcomes for victims? By that, I mean that the court orders compensation, which is deducted from criminal injuries compensation—that is another debate that I will not go into. In some cases—or in the majority of cases, if we are perfectly honest—the victim waits years, because it is a drip feed. If we are looking at funding, there is over £1 billion outstanding in unpaid fines and compensation. I would like the courts to act and get the money off the offender so that it goes to victims, who have to wait too long. Those are the criteria I am looking at. It will take a while, but it is paramount that the Victims’ Commissioner sets guidelines. I hear that line, “Does not look at individual cases”, but my correspondents think I can, and it really hurts me when I have to say that I cannot as Victims’ Commissioner—it is all the jargon and waffle that we do. I ensure that victims truly understand that I will signpost their correspondence to the people in charge. I will show them, and they will get transparency in that way.

Am I out of time, Dr Murrison?

You are, but you can ask a question very briefly.

I was just going to offer the panel the opportunity to say whether there is anything not in the Bill that they would like to see included.

I think we will pass on that, if we may. I will go to our last question from Tristan Osborne, but we have to be quick.

Q My first question on the commissioner’s powers has already been asked. My second question is on magistrate powers in the Bill. Obviously, six provisions have been included, and you mentioned last year that court backlogs are a real issue. Are there any other powers, within the magistrates’ powers that have been granted, that you would seek to include that would reduce the timeframes and also ensure victims’ redress? Baroness Newlove: We are going to wait for Sir Brian Leveson’s report, because it does not matter what I say. It matters what Sir Brian comes up with. However, as my background is working with magistrates and Crown courts, I am looking at district judges, or DJs—who used to be called stipendiary magistrates. I want to see more of them, because I can assure you that if you have a stipendiary magistrate—and there are only two laypersons, by the way, and this is one—the professionals have to get their act together. It depends on what Sir Brian Leveson is looking at, and—

Order. I am very sorry to interrupt, but we are at the end of the time allotted for the Committee to ask questions. On behalf of the Committee, I thank our witnesses for their evidence. Examination of Witnesses Rebecca Bryant and Charlotte Hamilton-Kay gave evidence.

10:26:00

We will now hear oral evidence from Resolve and ASB Help. We have until 10.55 for this session. Will the witnesses please introduce themselves for the record? Rebecca Bryant: Good morning. My name is Rebecca Bryant and I am the chief executive of Resolve. Charlotte Hamilton-Kay: Good morning. I am Charlotte Hamilton-Kay and I am the deputy chief executive of ASB Help.

Q Good morning. I am Dr Kieran Mullan, a shadow Justice Minister. The antisocial behaviour that your work focuses on is often resolved, at least initially, through non-custodial sentences, so the other measures available to the court are particularly important. I would like to ask you about court fines and compensation. I have spoken to victims who feel it is unfair that if someone is responsible for, let us say, the criminal damage of property, the victim will not necessarily be awarded compensation for the value of that property, as they would if they took someone to the small claims court. To reassure people in the community that the measures available are effective, would there be benefit in ensuring that when someone is responsible for property damage, the victim is awarded compensation that matches the value of the damaged property? Rebecca Bryant: Compensation in relation to antisocial behaviour cases is currently quite vague. Often, if you are looking at cases that are resolved through an early intervention and prevention approach, you would be looking at more of a restorative justice element, and perhaps mediation, where there is no compensation and it is more about recognising the impact of the behaviour the person has perpetrated. Once you move into the legal action arena, we have to recognise that a lot of the people who are perpetrators of antisocial behaviour may not be in a position to pay any compensation—although I recognise that, from a victim’s perspective, some sort of restorative approach would be welcome. Charlotte Hamilton-Kay: I agree with that. Part of the problem with antisocial behaviour is that when we record it, and when certain agencies take reports, there is a real grey area in how it is classified. We struggle with the classification of crime versus antisocial behaviour. It is often dismissed as a misdemeanour or, as Baroness Helen said, it is low level, so we are not necessarily going to reach the threshold at which we can look at compensation. That is impactive for victims of antisocial behaviour, because it immediately makes them feel that what they have experienced and suffered is not as important or serious as other cases that might meet the criteria. We would really need to look at that before we could go that way. Additionally, victims of antisocial behaviour often do not report what they are experiencing because they feel they are not going to be listened to or taken seriously. Introducing a compensation element would just complicate that at this stage.

Q Is it ever an element of the community resolution process that a perpetrator might agree to make some kind of financial compensation voluntarily? Rebecca Bryant: That is not something that I have come across at all. Restorative justice and community remedy can be either between the two individuals or group of individuals who are involved in the antisocial behaviour—bringing them together and doing a piece of work to recognise the impact of that behaviour—or something in the community itself, perhaps with higher visibility. There was a pilot last year around immediate justice and the impact on the community of seeing the behaviour paid back, if you like. Restorative justice is often only one of the tools that we use to respond to antisocial behaviour. When we are talking about early intervention and prevention, we also use mediation and warnings, highlighting to the individual perpetrator the impact that the behaviour is having on the victim and the community.

Q Related to that is the issue of fines, which are separate from compensation. I accept your point about people’s ability to pay, and that there is always a process that ensures that fines are collected only in a way that is proportionate to someone’s means, but you can time out of fines: if you have not paid them in a certain amount of time, you do not have to pay them. Would you support that time limit being taken away, so that if someone comes into financial means later on in life, they will still be held accountable for stuff they did in the community for which they were given a fine as part of community resolution? Rebecca Bryant: Yes, I think I would, but how long is that time? I think a victim of antisocial behaviour, community safety issues or even crime wants to see some closure, move forward and move past the incident that has happened. Having something like that hanging over them for an indefinite amount of time might not enable them to have that closure. Charlotte Hamilton-Kay: The bonus of fines or penalty notices for antisocial behaviour is that we hope they act as a deterrent. If they are not working as a deterrent, it does not matter what amount of time we put on them: they are not going to have the effect on the perpetrator of stopping the behaviour. Yes, there needs to be culpability —we should not just have a “get out of jail free” card if we can wait out the clock—but we need to be realistic about what they are going to achieve.

Q I appreciate that some of what you deal with would not end up involving a magistrate passing a sentence, but sometimes that will be the case. Would it benefit transparency for victims, even at a magistrates level, to have a record of the remarks that were made in relation to why the sentence was passed? Rebecca Bryant: Absolutely, yes, I do. What is taken into account around sentencing is often rather opaque, as is whether someone actually has to attend the sentencing. Victims need to be able to see justice done, because they have had a traumatic experience and have perhaps gone through the process of giving evidence live and having to face the person who has perpetrated the antisocial behaviour, crime or community safety issue. Having access to the sentencing report and the sentencing itself, and understanding that their victim impact statement is being read out and taken into account, would be significantly beneficial. Charlotte Hamilton-Kay: I agree. We have to look at everything on a case-by-case basis, and in some situations it would not be appropriate—a victim would not feel comfortable with it. The problem with antisocial behaviour is, again, that grey area between ASB and crime. Impact is the biggest factor, and a victim needs to have that voice and explain how they have been impacted, but we certainly do not want the secondary traumatisation of coming face to face with someone who potentially does not acknowledge what they have done. You would have to look at the complexities of each case.

Q What are the benefits of the Bill having the first ever duty to co-operate among housing providers, the Victims’ Commissioner and other relevant authorities? What will that do for victims of ASB? Charlotte Hamilton-Kay: It is a really great step. We need more accountability, and oversight of all agencies involved in managing antisocial behaviour, and the duty to co-operate with the Victims’ Commissioner, is a really great start to that. There is a huge postcode lottery and disparity across England and Wales in the way that victims of antisocial behaviour are supported, the way their cases are managed and what action is taken on different behaviours. Anything we can do to bring a nationalised approach would be really beneficial to victims. Rebecca Bryant: I think there is a balance. We welcome the Victims’ Commissioner having the authority, and the co-operation element, but the arena of social housing, local authorities and antisocial behaviour is very crowded at the moment. You have the social housing regulator, which is currently looking at housing providers in relation to the consumer standard, which includes antisocial behaviour—their approach to it, the number of cases per 1,000 and the respondents’ satisfaction with how they respond to it. That is not just for housing providers; it includes local authorities with housing stock. That is one side. You also have the local government ombudsman and the housing ombudsman, which both deal with individual people who are not satisfied with the response they have received from the agency we are talking about. We are very supportive of antisocial behaviour victims and approaches being at the forefront of the Victims’ Commissioner’s mind, and her or him being able to pull together responses, require people to respond and perhaps look at themes and areas where we can strengthen our support and guidance for agencies that work in this arena, but what will that actually look like? We are currently working on that with the current Victims’ Commissioner. At the moment it is quite vague. There would have to be a tightening up of what element she is going to look at, bearing in mind that the ASB case review, the housing ombudsman, the local authority ombudsman and the social housing regulator are all looking at the same thing.

Q What measures to improve the situation around antisocial behaviour would you have liked to see in the Bill that are not in it? Rebecca Bryant: Funded universal support for victims of antisocial behaviour. It has been made clear by not only us but the previous panel that antisocial behaviour is a very broad church and often includes criminal activity, but it is not recorded as a crime. We use antisocial behaviour legislation, as it is under the current regime and as it will be in future with the Crime and Policing Bill, as that stands, for the use or threat of violence, for example. We all know that using or threatening violence is a crime, yet we use antisocial behaviour legislation to respond to it. It can involve drug dealing, cuckooing properties, criminal damage—all those things are crimes. If you are a victim of crime and you report it as a crime to the police, you will get an automatic offer of victim support. When you are dealing with an antisocial behaviour case, you might report it to the local authority or to a housing provider, and you do not get immediate access to victim support. We know from our own research and research from the Victims’ Commissioner, various different reports and colleagues like ASB Help that what supports a victim is having a named person who can support them through the process. That person can guide them through often very complex and difficult situations in relation to taking legal action, or if the perpetrator is vulnerable and has multiple issues around mental health, drugs and alcohol, and the significant delays in the civil justice system mean that the case may go on for a long time. We need specialist victim support that is universal and independent. I should stress the independence because, often, when a complainant makes a complaint to a housing provider and a local authority, they will be part of a caseload of many. They will be given some support and guidance, and some people have specialist training to do that, but we would seriously support having an independent specialist to provide that kind of support—for example, Victim Support, which is commissioned and funded. It is very much a postcode lottery at the moment. There are some police and crime commissioners in the country who fund specialist ASB victim support, but they are few and far between. It really is a postcode lottery as to what you get where you live. That is what I think is missing. Charlotte Hamilton-Kay: I absolutely agree with that. We can talk about victims of a single instance of minor crime, which I do not say easily; it is the criminal version of “low level”. If, for example, someone smashed your plant pots on your front doorstep, that is a crime and you are entitled to support for it. But if you have been suffering sleepless nights for 12 months because a neighbour has kept you awake constantly, you are losing your job because you are falling asleep at work, and you have experienced a constant campaign, there is no one there. If there was a statutory agency to provide support, that could be life-altering for some people. It is a very important thing that we continue to campaign for. With the best will in the world, a lot of the measures are a great step forward for victims of antisocial behaviour, but if we do not allocate the resources and ensure that the training and experience is there for frontline practitioners, then we are only as good as our weakest link. We need to ensure that we support our frontline practitioners who work in the field of antisocial behaviour to get the job right. If they do not have the resources to do the job properly, they are not going to be able to. If they have not got the training and the knowledge to understand the vulnerabilities and the different caveats of antisocial behaviour, they are not going to be able to do the job properly. That is immediately where we fall down. Unfortunately, the buck will stop with them, so we are dutybound to make sure they have adequate support to do it right.

Q Rebecca, you talked about situations in which there is a complex mixture of housing and mental health issues, and possibly drugs and alcohol, and the housing association or local authority struggles to move the person on because it is not clear where they would go. Do you think the agencies involved have the tools and resources they need to comply with the Bill in respect of the Victims’ Commissioner? Rebecca Bryant: I would say that the vast majority of local authorities and housing providers up and down the country resource their response to antisocial behaviour, but there has been a significant impact on that since 2008, with austerity and the cuts that have happened across local authorities. I believe that the toolkit itself is strong. There is a mixture of early intervention and prevention, which we absolutely know work. Around 75% of complaints around antisocial behaviour are resolved first time. When we are talking about taking cases to court, we are only talking about a small minority of all the complaints. There is something there about us understanding the real picture of antisocial behaviour in the country. A million incidents of antisocial behaviour were reported to the police last year, but our YouGov survey suggests that over 50% of people do not report antisocial behaviour, so imagine doubling that number to 2 million, and then adding on top the incidents recorded by housing providers and local authorities: we are probably looking at more like 4 million or 5 million incidents of antisocial behaviour. It is a really significant problem; it is pernicious and causes great damage to communities and individuals alike. There are certain things that we strongly feel should happen. We did some work with the all-party parliamentary group a couple of years ago, looking into the complexity of antisocial behaviour. We made a recommendation that there should be a pilot for a specialist housing court that could look at the complexity around antisocial behaviour. You are asking an ASB officer to be an enforcement person, a mediator, a victim support person, a mental health expert and a social worker. We recognise that people who perpetrate antisocial behaviour can often be victims themselves and have had traumatic experiences—adverse childhood experiences—in their lives, which might be the root cause of their antisocial behaviour. We need to have something like a specialist court, and we need the judiciary who look at antisocial behaviour to be trained to understand the complexity, because we often find that judges are not necessarily trained in antisocial behaviour when they look at complex cases. The resources required are wide. It is about not just local authorities and housing providers but the community safety partnership, because we know that a partnership response is what resolves antisocial behaviour. It is not about one single agency, and it is certainly not just within the auspices of the police.

Q In my experience, housing is often at the heart of antisocial behaviour and the related problems and, of course, at the heart of that is usually the tenant. What are your views about how the provisions in the Bill can be effectively communicated to tenants so that they have knowledge of what their rights are and how to access them, in relation to local authorities and social landlords? Rebecca Bryant: We have long called for a campaign on antisocial behaviour to explain rights. That is one of the reasons why we have Antisocial Behaviour Awareness Week, when we talk about how to report and what people should expect when they report antisocial behaviour. I liked the idea from Victim Support that perhaps we should have a charter that explains people’s rights: you can ask for an ASB case review, you can make a complaint to the ombudsman if you are dissatisfied, and you can—if this element of the Bill passes—make a complaint to or request support from the Victims’ Commissioner. Equally, we must remember that this is about stopping antisocial behaviour. Often when members of the public report antisocial behaviour, they are looking for a specific outcome. That outcome might be to evict the person who is the perpetrator, when actually, that is not our role. Our role is to stop the antisocial behaviour from happening. So there is always something, on behalf of housing providers and local authorities, about managing the expectations of the individual who is making the complaint and being really clear on what antisocial behaviour is, what you can resolve as an individual, and what we can do to support you as an organisation. We need to be much clearer about what people can expect from us as the agencies and our response. Charlotte Hamilton-Kay: Absolutely. I will make a couple of points. Rebecca has mentioned the ASB case review. The disparity in its administration across England and Wales is a real issue for victims. We released a report last year that showed there are some areas in England and Wales that, in four years, have still not held one ASB case review, and this legislation has been around for over 11 years. That is purely because victims are not aware of the case review’s existence. They are not able to make an application because it is not publicised. We have to ask why it is not publicised. Practitioners feel that it is a complaint process and will involve them being questioned on why they have made the decisions they have made in case management, and victims are really missing out on the opportunity to explain the impact of what they are experiencing. As Baroness Newlove mentioned, we really need to standardise the threshold for an ASB case review application, so there are no additional caveats—it is three instances in six months and that is it. We also need to standardise how it is publicised and how victims are made aware of it, because a lot of people are still unaware. A report that you at Resolve issued in the last couple of years said that 87% of people were still unaware of this tool’s existence, so in 11 years we have not done a very good job of making people aware of it. Finally, on the concept of a victim being able to express what they are experiencing, when we are talking about tenants, everybody experiences things differently. What might be really impactful to me could just go straight over your head. It is all about your personal circumstances and what your experience is, what your triggers are and what you happen to have been experiencing that day. We need to be very clear about what is antisocial behaviour, what is unreasonable behaviour and what is inconsiderate behaviour, and manage the expectations of what people can and cannot demand change to. Managing the expectations of victims is part of the support network. When they know what to expect and what can and cannot happen, and when they are not dealing with that unknown, it makes it a lot easier for them to cope.

Q Good morning both and thank you for coming to give evidence. We have rightly discussed antisocial behaviour in depth. I know from my own email inbox that it is a huge scourge on my constituents’ lives in Erewash. Broadly, what is your general assessment of how the Bill’s measures on antisocial behaviour will help us to tackle it as a whole? Rebecca Bryant: It is very difficult to see this Bill in isolation, considering we have the Crime and Policing Bill going through Parliament at the same time. We want to be in lockstep and to recognise that we need not only to support victims and communities, but to consider the drivers for antisocial behaviour—where it is happening and how we can better respond, whether that is through a legal toolkit or by putting checks and balances in place. For example, I gave evidence to the Joint Committee on Human Rights last week around checks and balances on ensuring that we recognise the human rights of individuals versus the community, and how we do that. Having a spotlight on antisocial behaviour can only be a good thing if it is what the majority of people in the country say is a high priority. Having spoken to lots of Ministers, Governments and civil servants over the last 25 years that I have been working on antisocial behaviour, that priority has not gone away. When you look at our survey results on the impact of antisocial behaviour, one in seven people say that their mental health is impacted, and one in 10 actually move home because they are a victim of antisocial behaviour. Over 50% of people do not report it to us. Why not? Is it because they do not trust us to respond? Is it because we do not advertise how to report it to us? There is something there that we need to be think about, and we need to do more research into that. With the Crime and Policing Bill, there will be mandating of data collection. For the first time since the crime and policing Act that is there at the moment, we will be gathering information on use of early intervention and prevention tools, and we will be able to evaluate what works, what we want to invest in and how we train our staff. We will look at legal action and whether the new respect order—as it will be once it has been piloted—works. What is the impact of positive requirements and what is the impact of sentencing? What is the impact of increasing fines as a deterrent? At the centre of that, we will have the Victims’ Commissioner, advocating for individual victims of antisocial behaviour—in a different way, perhaps, from the way the ombudsman will be looking at complaints, the ASB case review looks at a response or the social housing regulator looks at things. The Victims’ Commissioner is actually advocating for the individual victim or the communities that are being impacted, and that can only be a good thing.

I thank colleagues for the timeliness and focused nature of their questions. I thank the witnesses for sparing their valuable time this morning to come and give evidence to us. Examination of Witnesses Clare Moody and Assistant Chief Constable Genna Telfer gave evidence.

10:51:00

We will now hear oral evidence from the Association of Police and Crime Commissioners and the National Police Chiefs’ Council. We have until 11.25 am for this session. Will the witnesses please introduce themselves for the record? Clare Moody: Good morning. I am Clare Moody, representing the Association of Police and Crime Commissioners. Genna Telfer: Good morning. I am Genna Telfer, representing the NPCC.

Q Hello. I am Dr Kieran Mullan, shadow Justice Minister. I want to begin with the unduly lenient sentence scheme. Obviously, you will work directly with victims, and the outcome of all your work will be a sentence passed by a judge. I know from personal experience that, privately, the police can sometimes be just as frustrated with sentences as victims are. You will know that at the minute, anyone, including victims and their families, has only 28 days to appeal against a sentence they consider to be unduly lenient. Given your experience of being in court and working alongside victims, with all the trauma that they might be experiencing at that time, do you think there is any merit in extending the time available for victims and their families to appeal against an unduly lenient sentence? Genna Telfer: That is a difficult question to start with. It is a tricky one. This would probably be better done through a victim survey of individuals who have been through the process. Although we would want to give people additional time to truly consider it, what might take someone two weeks to think about might take someone else 12 months, so what is the right timeline to put on it? I am not sure I can answer that from a policing perspective. Obviously, our witness care teams keep victims informed and talk to them. That is absolutely something we would do. We inform them about the scheme, but we do not tell them whether they are eligible for it or not, because we think that would be better done by the CPS, which has a better understanding of how it all works. But in terms of the timeline, that is a difficult one to answer, because how long is a piece of string? Clare Moody: I agree with Genna. I do not feel that I am qualified to say right now that if you extended this to three months or to two months—

Q If I may interrupt—sorry—do you think 28 days is enough? Clare Moody: I would want to come back to you on that point specifically and separately, because I do not feel right now I could give you an informed response.

Q Okay. I would like to ask you next about sentencing remarks. Again, you work with victims; you see at first hand, through your victim care work, the trauma of a court process. Very often—outside some very limited trials—victims do not get to see sentencing remarks. A week later, it is all just what their memory tells them and what might be reported in the press. Again, based on your experience of working directly with victims through the criminal justice process, do you think there is any benefit in having sentencing remarks published, so that people can actually see what was said in court at the point of sentencing? Clare, do you want to start with this one? Clare Moody: I absolutely can see the benefit in that. When you are in the moment, with so many emotions, and are in a high state of emotional experience, we do not retain information—none of us does. So we are talking about being able to refer back to that. I am not clear, to be honest, on the reasons why the remarks are not already published, so I cannot argue to the specific points about why this does not exist right now. But my instinctive response, if that is fair, is that, yes, it would seem sensible to publish those remarks. Genna Telfer: I think this came up recently. I am not sure whether it came out from one of the surveys, but there was a question about victims being present at sentencing, and I know that some work was going on about that with the CPS as well. So if they want to be in the room, rather than just reading the remarks, obviously, that might be beneficial to some victims.

Q I also want to ask you about the new power that is being introduced in the Bill to compel offenders to attend sentencing hearings. We are tabling an amendment to suggest that victims and their families should be consulted as part of that process. Again, based on your experience of being in the courtroom and of working with victims and families, do you think there is benefit in ensuring that victims and families are part of the discussion about what happens with attendance at hearings? Genna Telfer: Absolutely. That was one of the points that we were going to raise today. I think victims should be considered and consulted as part of that process. Having read about the way that this is going to work—the different options such as potentially adding time to the sentence, or physically removing a suspect into court— the second option is “reasonable force” and I can imagine there are lots of issues with that, in terms of practicality. If someone really does not want to be in court, it will be difficult to achieve that. There is then the potential disruption that could be faced, such as delays for the victim because the trial takes longer to go ahead as a result of that issue. So I think some victims will absolutely want that, but others would probably prefer not to have it.

Do you want to add anything, Clare? Clare Moody: In terms of the involvement of the victim in that decision making, as Genna said, there are complications around getting the perpetrator into the courtroom, but who would not want them to see the justice that is being meted out and for the victims to have that opportunity? But yes, the consultation would make sense.

Q On that point specifically, the non-attendance of sentencing hearings, we feel that we have gone as far as we can in the Bill in terms of introducing prison sanctions and other sanctions that can be given to the perpetrators to enable their attendance at their sentencing hearings. It is the first time ever that judges will have these powers at their discretion. You mentioned concerns around “reasonable force” in getting them to the courtroom. That is one thing that is available under the Bill. The Opposition have also tabled an amendment about the ability to gag and restrain perpetrators who attend. Do you have any thoughts on that and on how workable it would be? Genna Telfer: As I said, moving anyone who does not want to be moved is very difficult. We do it all the time in policing; we have to move people when they do not want to. It is difficult, it takes a lot of people and it takes a lot of resource. There is a risk of injury to the prison staff who are moving them. What we are trying to achieve, versus the impact of trying to do that, might be the balance that is needed. I think that while it is good to have it in there, prison entitlements and the potential extension of the sentence are probably more the tools to do this than the actual physical restraint of people. Clare Moody: I would say exactly that. An accidental outcome of this should not be the greater traumatisation of victims. The process might wind up with some kind of scene that involves centring the perpetrator, rather than what the victims have been through. I think there needs to be care around that in ensuring that victims are still at the heart of the process.

Q Bringing it back to victims, which is exactly what the Bill is meant to be about, one of the new measures in the Bill concerns the victim contact scheme and a dedicated helpline for victims, so that they can have and request information about their perpetrators—for example, about conditions placed on them—and their cases. As frontline officers, dealing with this every day, what difference do you think will that make to victims and survivors? Genna Telfer: I think it will simplify it. At the moment we have two schemes—the contact scheme and the notification scheme—with different eligibility, so it will make it slightly easier. The helpline is a great idea, but it needs to be resourced properly, as with anything. If it is not, then we are setting an expectation for victims that might not be met, which might frustrate them further. A concern for us in policing is whether, if it is not resourced properly within probation, it falls back to policing to address, when we might not have the information or resource to do it. But in principle, absolutely, I think it is a great idea. Clare Moody: Again, I agree with that. It is about simplification, clarity, support for victims, and the value that that adds. Of course, there will not be straightforward calls. Victims will be calling in and asking, “But what about this?” or “Can you tell me this?” to get more information. There will be complexity in the calls that come in and the response to them. There needs to be resourcing for that, and there may be a knock-on to wider victim services, because there will be questions that fall out of that and through to the victim services support sector.

Q How do you see the new powers that the Bill gives the Victims’ Commissioner affecting work with police and PCCs, particularly on victims of antisocial behaviour? Clare Moody: Those powers are welcome. One of the points about the new powers is the reporting. It is about aligning what is going on with those powers. Where police and crime commissioners have a responsibility for antisocial behaviour reviews, how does that align with the work of the Victims’ Commissioner? With all of this, it is about making sure that there is simplicity in the system for victims and that there is not duplication, and aligning things. For example, as police and crime commissioners, we do local reporting through the local criminal justice boards, and we report into the Ministry of Justice through that. How does that sit alongside the work of the Victims’ Commissioner, so that there is not a multiplicity of reports and we are pointing in the same direction of benefits and changes that we need to see for victims? Genna Telfer: Yes, it has to complement what PCCs are doing through the local criminal justice boards. Any additional support we can get to work with partners is welcome. As was described earlier, ASB is definitely not just an enforcement issue; it is the whole partnership piece. We welcome the additional powers around housing. As Clare said, it has to complement what is going on locally.

Q Thank you for coming in to give evidence. In areas such as support for victims of sexual violence and rape, helplines have been closed down over the past few months and years because of a lack of funding. How confident are you that the funding and resources will be there to set this helpline up and keep it going further down the line? Clare Moody: I cannot comment on future spending and where that will go. We would share the view that resourcing matters for the helpline. The nature of services is that they generate demand. It is not just about services for the helpline; it is about wider victim services support. That is for funding decisions that are beyond my remit.

Q As a police and crime commissioner, would you like to see increased funding for other victim services? Clare Moody: As a police and crime commissioner, I am always going to ask for increased funding.

Q Are you confident that the helpline will give victims the information they need about the perpetrator? Will things be joined up enough for a national helpline to be able to answer a question that could come in from anywhere in the country? As far as I understand it, there will not be different helplines in different police areas. Genna Telfer: That is always a challenge. It is a challenge that we are trying to work through at the moment in terms of code compliance and how we share information through different agencies. There is a piece of work going on between policing, the MOJ and the CPS to try to work out how we align all our data—how we have the right people giving the right information at the right time, but also access to that data. The first thing is whether the data is right. There is a whole piece of work going on in the MOJ at the moment around data auditing and checking. The second thing is how the communication is happening. We have just launched a joint communications framework between policing and the CPS, which gives our witness care units practical examples of what they communicate and when. In future, we would like, potentially, to look beyond that to go into probation and expand it further. There is another piece of work ongoing around technology and how that could assist us to do some of this. That is subject to funding, because none of that comes cheap, but absolutely, the intention is to try to align that as much as possible. There will probably always be some gaps when you are transferring from one agency to another, but as much as we can, we are trying to join it up, so that the victim gets the right information, ideally from the right place.

Q It sounds like quite a lot of work to do behind the scenes to make this function properly. Genna Telfer: Yes, absolutely.

Q Before I ask my question, I declare my interest as a member of the Prison Officers Association, a former POA branch chair, and a former prison officer at the rank of SO trained in control and restraint, PAVA and SPEAR. I want to ask a specific question on the Opposition amendment on restraint and gagging in court. I understand the Government’s position, allowing reasonable force at the judge’s discretion. As you will know from policing history, the use of force is on a spectrum from minimal right up to the top end. I have never heard of being able to gag. It is certainly not a technique that is used in the Prison Service; it is not in the “Use of force” manual and it is not part of the training. Were the Opposition amendment to be made, how would you suggest that it be done? What do you think the impact on the courtroom more widely would be if we were to take forward gagging? Do you believe it is even legal under current rules? Genna Telfer: Obviously it is not something we are trained in, or something we do, so there would be a whole training implication. We do use spit hoods—that is probably as close to that that we get, in terms of putting something over someone’s head, but that does not affect sound and even those are quite controversial, so they are used quite sparingly. It is difficult, because if we did not do that, we are back to the disruption point and potentially removing people straightaway for contempt of court. On the legality, I do not know—it is something that we would have to have a look into. If it were agreed, it would need to be checked whether it was legal, and then there would be a whole range of training. But that is not something policing would do; it would be the Prison Service involved in that, rather than us. I can talk about my own experience. I was an officer safety trainer, so I have quite a lot of knowledge and, again, that would be really difficult to do. We use leg restraints, handcuffs and things, but to restrain someone effectively and to gag them to move them into a courtroom, I think would be really challenging. Clare Moody: I go back to the point that I was making earlier about not making this a theatre show. I think that would somehow make it a spectacle, and it puts the perpetrator at the centre of all the attention. As I said earlier, this is about justice for the victims, and I think that there would be real problems with that. Adding to the points that Genna made about the practicalities of it, making a show of it, or making theatre in the courtroom, I do not think is the appropriate thing to do.

Q To pick up on this theme, Assistant Chief Constable, the police show all the time that it is possible to move and restrain people legally, do they not? Genna Telfer: Yes.

Q So how is this different? Genna Telfer: It is not; it is exactly the same, but we do not move them easily. If someone does not want to be moved, there is a risk to the people moving them, as well as a risk to the individual. Obviously, we train and we do a lot of work to make sure that that injury is limited, but people do get injured when we try to move someone forcefully, on both sides.

Q The focus of what we are trying to do in this amendment is to put the victims at the heart of it. The police and crime commissioner talked about this potentially turning into—I do not think you used the word “farce”, so I do not want to put that— Clare Moody: I did not, no. I talked about making a spectacle of it.

Yes—sorry. That is why in the amendment we have suggested that victims need to be consulted about what would happen. Obviously that would be a risk, but that should be the victim’s choice. That should not be for the establishment—the criminal justice system or politicians. We should actively say, “This is the potential risk of this. Do you want that to happen?” They should be the people at the heart of our conversation, should they not? Genna Telfer: I think they should be at the heart of the conversation, but I do not think they should be the decision maker. If you have someone who is so violent that it presents a risk, effectively making other people victims—prison officers or whoever—there should be a decision either by the Prison Service or by the judge that, “This is too risky to do, and it is going to cause more problems than it is going to solve.” I accept that we would want to consult the victim and put them at the heart of it, but I do not think they should be the decision maker in that case. Clare Moody: I absolutely echo the point that Genna has made. It is one thing saying that this might be the outcome, and that it depends how the outcome is displayed in terms of what that could look like in a courtroom, but there could be the danger of retraumatising victims if this becomes all about the disruption in the courtroom at the point of sentencing. I think there are real problems with that. Genna Telfer: I do not disagree with the principle of it. I just think it would be very difficult to do.

Q Good morning, both; thank you for appearing this morning. There are lots of cases in my constituency, and I am sure in those of other Members as well, where housing associations are not taking strong enough action against tenants who are perpetrators of antisocial behaviour. We have heard from you and from the previous panel; there are lots of different agencies involved. How do you see the role of the police working alongside the Victims’ Commissioner, housing providers and other agencies to combat antisocial behaviour? How do you think the Bill could help make that relationship and partnership working more fruitful? Genna Telfer: We obviously have really close working relationships with our partners. There should always be a number of people around the table trying to work out the best option to deal with these cases—from a problem-solving point of view, not just in the short term. Rather than just solving the immediate problem by, for example, moving people from one address to another, they might ask, “How do we manage this for the future?” In my experience, I do not think there is an unwillingness from housing associations and local authorities to get involved. I think sometimes there are just challenges with being able to resolve some of the issues. The new power for the Victims’ Commissioner on the requirement to give a reasonable response as to why something has or has not been done will be really helpful, because it will provide more transparency and scrutiny of the problems we are trying to resolve. I do not think there is an unwillingness; I just think there are some challenges in the system that make it difficult.

Q Sometimes in my experience there is an unwillingness, but I appreciate what you say. Clare, have you got any comments on that? Clare Moody: Not specifically on the legislation piece. I think it is about the agencies working together. We have an example in Avon and Somerset where there are police officers who co-locate with the housing association —they have a desk space in the housing association—and that close working has resulted in closer co-operation on how to manage difficult situations with tenants. There are practical ways you can do things that do not necessarily require the legislation to change, because they are already in place.

Q I just want to pick up the point on the Opposition amendment about the power to restrain and gag a disruptive offender. I am particularly mindful that we are talking about a sentencing hearing, at which point someone will have been found guilty and convicted. I think the general sentiment from victims and the public is that at that point the rights of the victim and their family come first, and that should be front and foremost in the projection of what goes on in the court, in order to see justice delivered. I am mindful that in other jurisdictions, including the US, there are powers to restrain and gag a disruptive offender. Do you have any further thoughts on that? Genna Telfer: I am not sure I can add any more to what I have already said. I have said that if the victim wants the offender in court, I agree with the principle of it. In terms of gagging people and dragging them into court, which is effectively what we are talking about, it just becomes really challenging. I am not saying that you would not necessarily do it; I just think there is a whole load of stuff that needs to be worked through to consider it.

If there are no further questions, I thank the witnesses for their evidence this morning. Ordered, That further consideration be now adjourned. —(Samantha Dixon.)

11:15:00