Yesterday there was a Westminster Hall debate on the future of the Parole Board and given Dominic Raab's removal of Probation Officers being able to make recommendations, it clearly has important implications for the Probation Service.
Graham Stringer (Blackley and Broughton) (Lab)I beg to move,
That this House has considered the future of the Parole Board.
It is a pleasure to see you in the Chair, Mrs Murray. I come to this debate on the future of the Parole Board not as an expert in jurisprudence, or the theology of jurisprudence, but from my experience as a constituency MP and a member of the Science and Technology Committee. That Committee looks at, among other areas, how public bodies and Government Departments use evidence when coming to decisions. On 7 September 2022, the Science and Technology Committee had a really interesting session looking at the basis that the Parole Board had for making what are very difficult decisions, in many cases, about who to release on parole. I advise any interested person to read the transcript of that session.
Unusually, I want to start by thanking the Secretary of State for Justice. At the last Justice questions, I brought up the case of Andrew Longmire, also known as Andrew Barlow and previously, I think, as Andrew Seamark, a man who was given many life sentences, the last one in 2017, for rape. I asked the Secretary of State whether he would look into the matter, and he released a statement yesterday saying that he was asking the Parole Board for a reconsideration of that case. I am grateful to him for doing that. I am sure that the victims and the families of victims of Andrew Barlow who have contacted me are also grateful.
I would like to thank Neal Keeling, the Manchester Evening News journalist, who has written a number of stories about this case in that paper. Without those stories, I would not have known that Andrew Barlow was likely to be released, and neither would the families of victims and the victims themselves. I have had a large number of harrowing emails from people describing how their families and personal lives have been destroyed by this man and the multiple rapes he carried out over a period of time.
One of the issues in this case, which I obviously will not go into a great deal of detail about, is that Andrew Barlow was given his first life sentences over 30 years ago, and the progress on DNA analysis meant that the police went back on cold cases and found that he had committed two further rapes, so he was given two further life sentences. Amazingly, he said that he did not remember them. That factor should be taken into account in any Parole Board hearing. If the Parole Board wants to know whether people are remorseful and have changed their view, that is an indication of callousness. As many of the victims and their families who have written to me say, the man is a threat to them and to their families and should remain behind bars. I hope that the reconsideration leads to that.
Let me look at how the Parole Board operates and the decision taken by the Government immediately to change some of the process and carry out a full review, which was stimulated by the John Worboys case. There was a public outcry that he was going to be released. That case made many people think that there was something fundamentally wrong with the way the Parole Board was working. Following judicial review, the Court came to the view that
“the Parole Board didn’t do its job properly.”
That is an understatement of what happened. The Parole Board did not look at all the evidence and it did not look at the court decision properly when deciding that Worboys was going to be released. He was a category A prisoner, which means the Secretary of State thought he was a threat to society, but the decision was taken that he could apply for parole.
Liz Saville Roberts (Dwyfor Meirionnydd) (PC)
I congratulate the hon. Gentleman on obtaining the debate, and I rise to speak as co-chair of the board of the Justice Unions parliamentary group. In raising the John Worboys case, does he share my concern that particular emphasis was placed on advice from a psychologist and that advice from probation officers no longer includes recommendations? Although their advice is received, the issue of probation officer recommendations is a particular concern for the union Napo. Perhaps the Government should revisit the decision not to receive specific recommendations from probation officers.
Graham Stringer
I thank the right hon. Lady for that intervention. I know the trade union believes that recommendations should be made. I have read a lot of the arguments both ways—from the trade union and from the Government, as well as from many of the professional advisers. The case against what the right hon. Lady says is that when there is a recommendation, there is a temptation, for any human being, not to look at the evidence directly. The Parole Board should make its decision based on the evidence before it and its consideration of that evidence, rather than a recommendation. I also see the other side—what people who know the prisoner think, and considering what the probation officers think and recommend, which is important. It is a moot point, but I would not criticise the decision completely to take out recommendations.
Liz Saville Roberts
I agree that there is a debate to be had on the effect of that. Specifically, I hope the Minister will respond with respect to impact assessments following the change in procedure and the removal of recommendations from probation officers, particularly regarding black, Asian and minority ethnic prisoners and IPP—imprisonment for public protection—prisoners.
Graham Stringer
I ask the Minister to respond to that. Let me make a further point about the right hon. Lady’s intervention. The Science and Technology Committee was told in evidence—I think by Professor Shute; I hope I have that right—that when recommendations were made, it was rare to the point of being zero that the Parole Board went against the recommendation. That might or might not indicate that the Parole Board was not reading the evidence as it had been presented to the board. It is easy just to take the recommendations.
Let me turn to third parole case that, as a constituency MP, I spent a lot of time on a few years ago. Thirty years ago today, Suzanne Capper had a funeral and was buried after having been tortured for a week and murdered. I was not an MP 30 years ago, but it was in my constituency. She attended the school that I had attended many years before. It was a horrific case. Four people were convicted of her murder; three have been released, and one is up for parole. In the 1960s, the four people found guilty would have been hanged. I am against capital punishment, but I want the public to have confidence in the justice system. They were guilty of a crime every bit as horrific as the moors murders—Brady and Hindley were never released. Even though three of them have been released since I made representations to the Parole Board on behalf of Suzanne Capper’s mother, which were effectively ignored, I believe that one of the murderers should not be released.
When people learn that three of the murderers, and potentially a fourth, will be walking the streets of this country after that terrible murder, they will not think that justice has been done. I would like an assessment not just of how the Parole Board operates but of who is considered for parole. I do not think those murderers should have been. Although one cannot just use the general view that they should not be, I think there is a sense, when people such as that are walking the streets of this country, that justice has been undermined and has not been done.
Those three cases have brought me, as a constituency MP and as somebody who has been watching what has happened to the Parole Board, to consider that the Parole Board should be reformed in many ways. When the Science and Technology Committee took evidence, virtually all the witnesses said that the Parole Board previously operated in private—in secret. Sometimes it made decisions just on the papers in front of it, sometimes it listened to the criminal, and sometimes statements from the victims were read out. We all accept in court cases that justice must not only be done but should be seen to be done, but that has not been the case with the arguments the Parole Board considers. There may be a case for keeping some privacy, because victims and their families may be mentioned, but when a decision is taken to release back into the community somebody who has done appalling things, the public are entitled to know what the basis for that was and what the arguments and evidence were.
Liz Saville Roberts
I apologise for not making a speech today, but I am meeting Rhianon Bragg, whose case I raised in Justice questions. She has now received a letter of apology from the Secretary of State for Justice. Her medical, mental health details were given in a dossier to her abuser. She had previously applied to the Parole Board for his release hearing to be held in public, and that has been refused.
This mistreatment of a victim by the criminal justice system in itself warrants a public Parole Board hearing, because the public need to know why that happened. She has now been advised to apply to attend the Parole Board hearing in private but, frankly, this case is an example of it being in the public interest of justice for there to be an appeal procedure for the Parole Board. Far more Parole Board hearings should be in public, as the hon. Gentleman is calling for.
Graham Stringer
I agree with the right hon. Lady, and thank her for her intervention.
We do not only want transparency; there needs to be an examination of the statistics. We were told on the Science and Technology Committee that the percentage of prisoners applying for parole and getting it had gradually increased over the last 25 years from 10% to 30%—that is a huge change. My suspicion is that, even though it will not be down in writing, there is tremendous pressure on the number of people in prison. There is tremendous pressure on the costs; it costs a lot of money to keep somebody in prison. Somewhere in the background, without it being stated explicitly, there is pressure to get more people out, and that—probably—means that some people are being released into the community who are a risk to it.
The statistics on reoffending appear to be small. We were told on the Committee that in recent times 12 people have been released who have committed murder, and there have been a number of other serious crimes. As percentages, those are very low, but obviously those crimes are an absolute catastrophe for every family who has lost somebody to a murderer, and for the person who was murdered, and an indication that something has gone seriously wrong.
The Parole Board keeps for three years statistics on offences by people released on parole. When we questioned the chief executive of the Parole Board, we were told, “Well, after three years there is not a lot to learn, because Parole Board members may have changed and the process may be slightly different.” I do not accept that. Many of these prisoners are in for life, and the statistics that are kept should be kept for the whole of their lives, until they die of natural causes or go back to prison, so that we really know what is happening.
There was also a serious conflict of evidence between the Parole Board and some of the academic witnesses about how likely repeat offending was. According to the notes we had as Committee members, and what was said, there was a 25% reoffending rate for sexual offences against children who were non-family members. I have to say that the Parole Board did not accept that figure, but the academics were clear.
The other dispute over the evidence was that, in looking at the three-year period, many of the academics said that there is a curve showing that offending for certain offences was more likely the longer the period. Again, the Parole Board disputed that. If there are good records, these things can be verified factually; we should know what the answer is.
When it comes to the process of deciding whether somebody should be released, the Parole Board has limited tools. Psychiatrists and psychologists give reports. I say as a scientist, as well as a member of the Select Committee on Science and Technology, that sciences such as astronomy and many other branches of physics are predictive: we know where Saturn or Mars will be in 10 months, 10 years or 100 years.
Psychiatry and psychology are not predictive. The evidence before the Science and Technology Committee was that the psychiatric and psychological methods used for assessment were 20 years out of date, and that there were better ways to do it. Even with the better ways, there is no certainty around the risk of a prisoner reoffending. Even though the tools used at present are better, they are limited.
The second point is that statistically, given a series of factors, prediction is more accurate. On a statistical basis, it can be said that, given those factors, 2% of prisoners will reoffend, but we do not know which 2%. It is important to know the risk, but none of that gives a guarantee that a person will not reoffend. It is worth considering that against the background of the large increase in the number of people being released back into the community.
I have tried to stay with the factual basis of what the science says, what the science can and cannot do, and the practical mistakes made by the Parole Board. We heard very concerning evidence that a sex offender treatment programme increased rather than reduced the chance of reoffending. That programme should be looked at. There should be a clear definition of what is meant by public protection and how it is measured. In addition to that sex offender programme, there should be a proper assessment of all rehabilitation programmes and where they take place.
I have already mentioned that Worboys was a category A prisoner when a decision was taken to consider him for parole. We were told that he was not on his own. We were also told that it was almost unheard of 25 years ago for category C prisoners to be considered for parole, let alone categories B and A. That seems to be one reason for the increase in prisoners being released. The previous process of rehabilitation programmes in prison, with people moving down the category list into open prisons, is less common, although it has not been abandoned. There are certainly many exceptions to that rule. We did not hear any reasons why those exceptions had been made.
I have talked for quite a long time. These issues are important—I know our constituents consider them to be important—and very difficult ones. I refer people who think that the Parole Board can be objective to what I think is not a nice but a rather brilliant film by Stanley Kubrick, “A Clockwork Orange”. It has a different ending, incidentally, from that in Anthony Burgess’s book. Had he been alive, Burgess would have been at one time a constituent of mine; he was born and brought up in my constituency.
Alex DeLarge, the villain of the piece—a hooligan and rapist—goes through all sorts of psychological brainwashing processes to turn him into a model citizen. At the end of the film, when the establishment says, “This has worked; we have now turned Alex into a decent human being”, he turns round and winks at the camera. In a rather unpleasant way, that is a celebration of how the human spirit cannot be brainwashed and he, one guesses, is still the nasty person he was at the beginning of the film.
The Parole Board has a difficult job in assessing cases. It is a necessary job, but it has gone away from the standards of evidence and from being able to tell us that it has been thorough with the procedures. In two of the cases that I have brought up, the Parole Board has failed to tell the victims and families, and that should be an impediment to somebody leaving. The probation service wrote to me and said that it is difficult to find families 20 years later. It might be difficult, but if it uses the local press and tells people and is transparent, it might be a great deal easier to find members of families who have moved and changed their telephone numbers.
I am not saying that the Parole Board’s job is easy—it is difficult—but it has not been done as thoroughly and well as it could have been. People have been put at risk and potentially put at risk. The Government need to change the policy on the basis of the evidence and make sure that the public are secure by not allowing some people to get parole and by making sure that they are as certain as they can be that some other people pose no risk to the public.
Jim Shannon (Strangford) (DUP)
Alex Cunningham (Stockton North) (Lab)
It is a pleasure to serve under your chairmanship, Mrs Murray. I congratulate my hon. Friend the Member for Blackley and Broughton (Graham Stringer) on having secured this hugely important debate to highlight the urgent challenges facing the parole system. Much of my speech will reflect and build on his concerns.
My hon. Friend mentioned the deeply distressing case of Andrew Barlow, formerly known as Andrew Longmire, and I echo his concerns. I, too, welcome the Lord Chancellor’s referral of the case back to the Parole Board for reconsideration that was announced yesterday; it is a testament to the hard work and campaigning of the victims. I also put on record my admiration for my hon. Friend and the vital work he has done, championing those victims’ cause in Parliament. As a former journalist, I also commend the role of the media in this particular case. However, it is totally unacceptable that the victims and their families did not receive the expected prior notification of Barlow’s planned release. Sadly, as highlighted by the hon. Member for Strangford (Jim Shannon), such failures are regularly repeated.
I am aware that the head of the Parole Board has expressed regret at the fact that some of Barlow’s victims were not informed, but that is simply not good enough. I note that when Sonia Flynn, the chief probation officer, gave evidence to the Science and Technology Committee last year, she confirmed:
“It is in statute that we must consult victims of serious crime on their view of release, and for them to also give our victim liaison officers a view regarding the protections that we need to put in place to reduce their concerns about that individual if the Parole Board does choose to release—particularly the obvious concern that they could bump into them in the street.”
It is deeply worrying that, even with a case as serious as this one, mistakes have been made.
I was horrified to learn that one of the victims, who still has nightmares three decades on as a result of the horror of Mr Barlow’s offending, only found out about his potential release, as we have heard, by reading the Manchester Evening News. We cannot allow our justice system to continue to treat victims as an afterthought. All of Andrew Barlow’s victims should have been signed up to the victim contact scheme and received communications from a victim liaison officer regarding how long he would be in prison, when he was up for parole and when he was likely to be released. They should have been told how to make a victim’s statement at the parole hearing. Such failings can retraumatise victims and seriously damage the public’s confidence in our justice system.
The Parole Board’s statutory purpose is to ensure that people who are dangerous are not released back into the community. It is a system designed to ensure public safety and to protect victims of crime, but after 12 years of Tory incompetence and chaos, our justice system is on its knees. Before the Minister uses the P-word, let me say that it was chaotic before the pandemic. Public confidence in the system is already near breaking point and with each further failing it gets closer to collapse. The Sentencing Council’s 2022 research report tells us that 45% of those surveyed were not confident in the criminal justice system’s effectiveness and 44% were not confident in its fairness. Does the Minister share my shock at those statistics? Public trust, efficacy and fairness of criminal justice are vital, or we will see fewer victims coming forward to report crimes and even greater numbers withdrawing midway through the process.
The 2019 Conservative manifesto promised to support all victims of crime and do right by victims, but the Government simply have not addressed these ongoing problems. How can year-long court delays and chronic staffing shortages from one end of the system to another contribute to a system that is doing right by victims? The Minister will not be surprised by my next question: when will the victims Bill come before the House?
It is clear to us all that the Government have completely lost their grip on criminal justice. Labour is the only party that can be trusted to deliver on law and order. We know that careful parole decisions are essential to reducing reoffending and its costs to society. Reoffending costs our society an astonishing £18 billion each year according to the Government’s own figures. Changes to the parole system introduced by the Government in June last year prohibit probation officers from giving a view or making recommendations to the Parole Board on progression or release of prisoners, thus removing an important element of professional expert knowledge from the process. In his evidence to the Science and Technology Committee, Martin Jones—CEO of the Parole Board—emphasised this expertise by saying,
“It is really important to make the point that we get evidence from prison and probation officers on whether a person is safe to be released or not, and work by the Ministry of Justice some years ago suggested that 90% of our decisions are in line with the evidence provided by report writers. That provides some evidence of consistency.”
In July last year, the three recognised Probation Service unions—Napo, Unison and the GMB—penned a letter to the Secretary of State with warnings about the serious consequences of the decision to prevent probation staff from making recommendations in written reports and oral evidence to the Parole Board under any circumstance. The ability to do so has long been a vital and valued part of the parole process. The unions warned that the decision
“severely endangers the ability of the Probation Service to protect victims of the most serious offences, and indeed the wider public, from the risk of serious harm posed by many individuals involved in the parole system.”
It further de-professionalises this vital public service role, leading to staff demoralisation, and exacerbating the retention problems that the Probation Service already faces. Prison and probation officers work hard day in, day out to deliver justice, and yet again they have been dismissed, undervalued and let down by this Tory Government. Speaking to the Ministry of Justice last year, a senior probation official said:
“It is extremely difficult and very disappointing that the Parole Board is the last to hear about important decisions which strike at the very heart of the difficult decisions we are asked to make. It makes our members’ already difficult job close to impossible.”
In fact, Napo members raised concerns about having to supervise someone in the community who they would not have recommended for release. They talked about the extreme stress that could cause, as well as the increased risk of further serious offences.
I am interested to hear from the Minister why removing probation recommendations was not included in the root-and-branch review of the Parole Board, and why there was no prior consultation with all stakeholders before the changes were implemented. Napo is concerned that removing professional recommendations in parole will lead to inappropriate releases and the non-release of those who otherwise may have been granted parole. Will the Minister share what impact assessment has been carried out on that particular issue, and confirm whether the Government sought the views of the Parole Board itself about having to make release decisions without expert witness recommendations?
The changes allow for the Secretary of State to make recommendations. That happens only in the most serious of cases—around 150 of the 6,000 that the Parole Board deals with each year. The remaining cases will now have no recommendation given, which seems astonishing to me. I ask the Minister for further information on the so-called “critical few” cases that the Secretary of State will be involved in. Can the Minister share how many oral hearings have been attended by a Secretary of State’s representative in recent times? In how many of those oral hearings did the Secretary of State’s representative recommend no progression—either from closed or open conditions, to open conditions from closed conditions, or release on licence?
Public hearings, the other major change introduced last year, were consulted on via the root-and-branch review. My hon. Friend the Member for Blackley and Broughton mentioned that as well. Personally, I am in favour of increasing the transparency of such hearings. When done properly, they could help to improve public confidence in the system. I know there have been only a few public hearings since their introduction, but could the Minister provide an update on how they are running, and how much engagement there has been with them? I understand that a remote link has to be set up to allow viewing, so I assume the Government have some sense of how many people are attending.
Finally, our probation service is still reeling from the reckless transforming rehabilitation programme, a failed experiment in privatisation. That disaster proceeded because the then Secretary of State, the right hon. Member for Epsom and Ewell (Chris Grayling), failed to listen to the warnings of those with the wealth of experience and expertise. I sincerely hope the current Secretary of State does not make the same mistake with parole.
The Minister of State, Ministry of Justice (Damian Hinds)
It is a great pleasure to see you in the Chair and serve under your chairmanship, Mrs Murray. I congratulate the hon. Member for Blackley and Broughton (Graham Stringer) on securing this important debate. His speech was thoughtful, deliberative and balanced. He spoke in the light of some of the most appalling and horrific crimes, murders and rapes that we have known in our lifetimes. The thoughts of all of us in this House are with the victims of those terrible crimes and their families. Their loss—their tragedy—does not dim with time. As the hon. Member for Strangford (Jim Shannon) said, victims must always be paramount in the system. The system must work for them and must be seen to do so.
I am pleased to have the opportunity to speak about the vital and difficult role that the Parole Board plays, as the hon. Member for Blackley and Broughton said, in protecting the public by making decisions about the release of some of the most serious offenders in our system. It is critical that the parole system works as effectively as possible to keep the public safe. That is, and must be, the top priority. The hon. Gentleman mentioned the September hearing of the Science and Technology Committee, of which he is a member. I have read the transcript of that hearing and agree that it was important and useful. He rightly said that statistics are important, as is understanding the statistics. He also said, and he was right, that statistics can only ever take us so far, because a serious reoffence is the most complete catastrophe—I think those were the words he used—for an individual and their family.
He made a specific point about reoffending statistics. I want to clarify that under the probation serious further offence procedures, His Majesty’s Prison and Probation Service captures data on every serious further offence that is committed by an offender who has been released by the Parole Board, regardless of how long afterwards that serious further offence was committed. I will write to him with the data behind that.
As has been mentioned by Members, including the Opposition spokesperson, the hon. Member for Stockton North (Alex Cunningham), the Government conducted a root-and-branch review of the parole system, which was published last year. It set out our proposals for making further improvements. I will say a little about the measures that we are taking, as well as seeking to address some of the points that colleagues have made.
We have heard about the impact on victims when offenders are considered for release by the Parole Board. I pay tribute to the hon. Member for Blackley and Broughton for his unfailing support for constituents who have been so dreadfully affected by serious offending. These are difficult and deeply distressing times for them, and I want to apologise to any who have not received the service that they should have. Their experiences demonstrate why it is so important to ensure that they, and the victims of other terrible crimes, are properly supported.
To that end, I will explain the measures that we are taking to improve the way the victim contact scheme operates, particularly when it comes to tracing and working with victims of offences that were committed before the scheme was established. I hope my comments about the action that we are taking will reassure colleagues about how seriously we take these matters and that, despite the problems that sometimes regrettably occur, we do have an effective system for keeping victims informed about the parole process.
One of the Government’s priorities, as set out in the root-and-branch review, is to improve openness and transparency. We want to enhance public understanding and bolster confidence. It is clear that in all cases, victims need to be kept updated on what is going on in their case, and we are looking at ways to improve that.
Before I say more about our plans to reform the system, it might be helpful if I first briefly go through the legislative framework within which the Parole Board operates. The Parole Board’s purpose is to decide whether prisoners convicted of serious, violent or sexual offences, who are serving certain types of sentences, can be safely released into the community on licence. The sentences dealt with by the Parole Board include life sentences, indeterminate sentences for public protection, extended determinate sentences and the sentences of those who are recalled to prison for breaching the terms of their licence. When passing sentence, the trial judge will set a minimum custodial period, which the offender must serve in prison for the purposes of punishment and deterrence. Once the minimum period has been served, the Secretary of State is required to refer these cases to the Parole Board so that the prisoner’s suitability for release on licence can be considered.
That decision is about the offender’s current risk, having completed the part of the sentence that the judge has said must be spent in prison for the offences committed. The wording of the statutory test for release is clear. The Parole Board must not give a direction for a prisoner’s release unless the board is satisfied that it is no longer necessary for the protection of the public that the prisoner be confined in prison. When applying the public protection test, the Parole Board needs to consider whether there is a risk of serious harm. If release is directed, the Secretary of State must comply with that direction unless it appears legally flawed, in which case the Secretary of State has the power to ask for the decision to be reconsidered.
The Parole Board is an independent body with expertise in risk assessment. It takes robust and fully-evidenced decisions. The board takes public protection very seriously. In around three out of four of the cases that are referred to the board, it decides to keep the offender in prison for the protection of the public. Where the board does direct release, less than 0.5% of the people in those cases go on to commit a serious further offence within three years. Any serious further offence is, of course, a tragedy and is fully investigated. The vast majority of offenders released by the board do not go on to cause serious further harm.
The hon. Member for Blackley and Broughton raised the Worboys case. That awful case highlighted the need for improved transparency, especially for victims, about the reasons for a Parole Board release decision. As the hon. Gentleman will know, in 2018 we introduced decision summaries, which are now routinely provided to victims and others to explain why the board has directed a prisoner’s release. The case also highlighted the need for a better and easier way to challenge parole decisions if they can be shown to be flawed. That led to the introduction in 2019 of the reconsideration mechanism, which the Secretary of State uses in cases in which he considers that a release decision should be looked at again.
We intend to go further to ensure that the system is as robust as possible. The root-and-branch review set out key proposed reforms that aim to ensure that public protection is the overriding consideration for release decisions and to introduce additional safeguards into the system.
Graham Stringer
I thank the Minister for his kind remarks. Will he respond to the two points that I made in the area that he is considering at the moment? One was that there seems to be an unexplained and dramatic increase in the 25% of prisoners who, as he just mentioned, are being released. The other was that category A, B and C prisoners are also being recommended for parole, which was not previously the case.
Damian Hinds
I will respond to the hon. Gentleman on the precise numbers in correspondence, if I may. The important point is that every case is considered individually on its merits; that has to be at the heart of how the Parole Board goes about its business.
We will make the release test more prescriptive, so it is absolutely clear that prisoners should continue to be detained unless it can be demonstrated that they no longer present a risk of further serious offending. Secondly, for a top tier of the most serious offenders—I think that the hon. Member for Stockton North asked for clarification on what the tier consists of; it is those sentenced for murder, rape, causing or allowing the death of a child, and terrorist offences—we will legislate to give Ministers the power to refuse a release decision made by the Parole Board if they disagree with the board’s view that the release test has been met. That will provide an additional safeguard and, I hope, further reassurance to victims that for the most serious offenders, including murderers and rapists, there will be oversight by Ministers, who will be able to prevent release if that is considered necessary to keep the public safe.
Thirdly, we will legislate to ensure that the Parole Board’s membership includes more people with law enforcement backgrounds, who will sit on panels dealing with the most serious cases. Having more members who are, for instance, ex-police officers with first-hand experience of tackling crime in our communities and dealing with serious offenders will further enhance the Parole Board’s expertise in assessing the risk such offenders present. The measures that I have described will require primary legislation, which, to respond to the hon. Member for Blackley and Broughton, we will introduce at the earliest opportunity.
We have already taken other steps within the system to enhance public protection and increase confidence. For example, we have reformed the way indeterminate sentence prisoners are moved to open prison conditions, and Ministers can block such moves if they do not meet new, tougher criteria. Also, we have introduced a new system whereby Ministers can submit an overarching view to the Parole Board about release in some of the most serious and troubling cases before any decisions are taken. That ensures that it is made very clear to the board at the outset if there is a case where Ministers would be opposed to the prisoner’s release.
I return to the important issue of victims’ experience of the parole system, which is at the heart of the case that the hon. Member for Blackley and Broughton made, and the measures that we are taking on it. When offenders are being assessed for release by the Parole Board, it can be a very difficult and distressing time for victims. We want to improve the way victims are engaged in that process, give them additional opportunities to hear about what is going on, and make them feel and know that they have more of a voice.
The mechanism by which victims are kept informed about parole is the victim contact scheme, which is operated by the probation service. It was first established in 2001 and applies to victims of sexual and violent offending where the offender is sentenced to imprisonment of 12 months or more. Victims who have signed up to the contact scheme should always be notified when a prisoner is coming up for potential release.
Victims have a choice about joining the victim contact scheme. If they choose to join, they will be kept up to date with key developments, including prisoners’ parole reviews, parole decisions and release decisions, by a dedicated victim liaison officer. During parole cases, victims can make a victim personal statement to the board, setting out the impact of the offence against them, and they may read it aloud to the Parole Board panel if an oral hearing is convened.
Victims also have the legal right to make requests about licence conditions, including a no-contact condition and an exclusion zone that prohibits the offender from entering areas where the victim lives, works or travels to frequently. Victims can also request a summary of the Parole Board decision and, where the Parole Board has directed release, they can ask the Secretary of State to consider applying to the Parole Board for the decision to be reconsidered.
It should be noted that some victims choose not to sign up to the victim contact scheme. Understandably, they may seek to do what they can to put the events of the case behind them. If there is no response to a second and third invitation to join the scheme, the probation service will properly respect their wishes and not keep contacting them. Victims can, however, join the scheme at any time, even if they have previously said no. A system in which all victims are notified about parole releases would not be practical for a number of reasons. For example, as I have said, not all victims will want to receive information, and unwanted contact from the service could retraumatise them.
The scheme was set up in 2001. For cases in the system before then, in relation to the victims of offences committed many years ago, it does not operate retrospectively. However, in the most serious and notorious of cases, such as some of those that have been referred to in this debate, the probation service should ask the police, through multi-agency public protection arrangements —known as MAPPAs—for support with tracing victims. In the Andrew Barlow case, which the hon. Member for Blackley and Broughton talked about, the Greater Manchester probation region is working with Greater Manchester Police to trace victims of the offences that Mr Barlow committed in the 1980s and 1990s and invite them to join the victim contact scheme. I should also confirm that, as has been said, my right hon. Friend the Deputy Prime Minister and Secretary of State is applying to the Parole Board to reconsider its decision to direct Mr Barlow’s release on life licence. Probation victim liaison officers will keep victims in the scheme informed of progress with the application for reconsideration.
As for the measures we are taking to make further improvements, particularly to increase transparency and the information available to victims and others, we committed in the root-and-branch review to allowing victims to observe parole hearings for the first time. We also confirmed that we would change the rules to allow for public hearings in some cases. I know that that has come up this morning, and I will say a little bit about the progress that has been made on both those commitments.
Since October last, victims have been able to observe Parole Board hearings as part of a testing phase that is running in the south-west probation region. During the hearings, victims are supported by probation staff, who discuss the parole process with them and ensure that they are directed to relevant support. We are working closely with the Association of Police and Crime Commissioners to ensure that tailored local support services are readily available, should victims require. We recognise that it could be retraumatising for a victim to hear the evidence that is explored during a parole hearing, so we are initially conducting a relatively small-scale testing phase to ensure we get the processes and support arrangements right. My paramount concern is to ensure that victims can observe the hearing in a way that is safe for them while not compromising the Parole Board’s ability to conduct a fair and rigorous assessment of risk.
The hon. Member for Stockton North asked for an update on progress. During the testing phase so far, victims have welcomed the opportunity to observe hearings. Following their feedback, we are working to improve the process to prepare for its expansion across England and Wales.
Last year, having made changes to the Parole Board rules, we also saw the first public Parole Board hearing, which was in the case of Russell Causley in December. A second public hearing has been agreed by the board and will take place this year in the case of Charles Salvador, formerly known as Charles Bronson. These changes will help to improve public understanding and awareness of the parole process.
In the root-and-branch review, we also committed to reviewing the current guidance and requirements for providing victims with information about the parole process. Our review will identify areas for improving the information that victims currently receive through the victim contact scheme. We will ensure that, where victims have requested it, they receive effective, clear and timely communication about the parole process so that they are sufficiently informed as their case is progressed.
As part of the primary legislative reforms that I referred to earlier, we intend to require the Parole Board to consider written submissions from victims about the release of the prisoner. That will be in addition to the victim personal statement that victims are already permitted to make to the board. Again, that is about doing more to give victims a voice and an opportunity to put their concerns and views to the Parole Board.
I want briefly to cover a few other points that came up during the debate. The hon. Member for Blackley and Broughton raised the sex offender treatment programme. The SOTP was discontinued in the light of research evidence, and a new treatment programme has been introduced, which relies less on group work.
The right hon. Member for Dwyfor Meirionnydd (Liz Saville Roberts), who is no longer in her place, indirectly raised a couple of points—one of which was also raised by the hon. Member for Stockton North—about the important issue of what is in the dossiers that are brought to the Parole Board and the content that comes from different perspectives and analyses. They both asked about not having individual staff recommendations. Reports will continue to provide all the same information, evidence and assessments about the prisoner as they currently do, with the exception of a recommendation or review from the report writer. The reason for that is that it is the Parole Board’s responsibility to decide whether the prisoner is safe to be released or should stay in prison for the protection of the public, based on the entirety of the evidence received. The written reports, including those from prison, probation and psychology staff, and the questioning of witnesses at oral hearings, will continue to provide all the evidence the board needs to enable it to reach fully informed decisions.
Alex Cunningham
The point about the information staff provide and how confident they are that it is being shared is important. I mentioned that staff appear to be concerned that we are releasing prisoners they would never have recommended be released. What does the Minister have to say to them about the credibility of information that is before the Parole Board, and the confidence in the decision?
Damian Hinds
As I am sure the hon. Gentleman recognises, the situation he describes could have happened anyway. I reassure him and other colleagues that this is not a diminution of the information that goes into the risk assessment. All of that information is still there, and that totality of information will be considered in the round.
The right hon. Member for Dwyfor Meirionnydd and the hon. Member for Stockton North asked about the impact assessment on changes to the recommendation system. The right hon. Lady specifically asked about impact on minority ethnic offenders. I want to reassure them that that impact is being monitored, though it is too early to assess on a segmented basis. It is important that we keep such matters under review.
I hope I have been able to provide some reassurance that, through the actions the Government are taking, victims’ concerns and the protection of the public are at the heart of our vision for the future of the parole system. I am grateful for the opportunity to respond to this important, thoughtful and measured debate, and thank everybody who has taken part—in particular the hon. Member for Blackley and Broughton, who secured it.
Graham Stringer
I thank the Secretary of State for applying for reconsideration, and I thank the Minister and right hon. and hon. Members who have participated in the debate, which I agree has been thoughtful. I hope it has brought to light some of the procedural failings of the past that need to be put right, and that there are worrying gaps in the information available, the statistics and the trend in those statistics, particularly the increase in the number of prisoners getting parole. There appears to be no obvious reason for that, and we need to understand it. Thank you for chairing the debate, Mrs Murray.
Question put and agreed to.
Resolved,
That this House has considered the future of the Parole Board.
I congratulate the hon. Gentleman on obtaining the debate, and I rise to speak as co-chair of the board of the Justice Unions parliamentary group. In raising the John Worboys case, does he share my concern that particular emphasis was placed on advice from a psychologist and that advice from probation officers no longer includes recommendations? Although their advice is received, the issue of probation officer recommendations is a particular concern for the union Napo. Perhaps the Government should revisit the decision not to receive specific recommendations from probation officers.
Graham Stringer
I thank the right hon. Lady for that intervention. I know the trade union believes that recommendations should be made. I have read a lot of the arguments both ways—from the trade union and from the Government, as well as from many of the professional advisers. The case against what the right hon. Lady says is that when there is a recommendation, there is a temptation, for any human being, not to look at the evidence directly. The Parole Board should make its decision based on the evidence before it and its consideration of that evidence, rather than a recommendation. I also see the other side—what people who know the prisoner think, and considering what the probation officers think and recommend, which is important. It is a moot point, but I would not criticise the decision completely to take out recommendations.
Liz Saville Roberts
I agree that there is a debate to be had on the effect of that. Specifically, I hope the Minister will respond with respect to impact assessments following the change in procedure and the removal of recommendations from probation officers, particularly regarding black, Asian and minority ethnic prisoners and IPP—imprisonment for public protection—prisoners.
Graham Stringer
I ask the Minister to respond to that. Let me make a further point about the right hon. Lady’s intervention. The Science and Technology Committee was told in evidence—I think by Professor Shute; I hope I have that right—that when recommendations were made, it was rare to the point of being zero that the Parole Board went against the recommendation. That might or might not indicate that the Parole Board was not reading the evidence as it had been presented to the board. It is easy just to take the recommendations.
Let me turn to third parole case that, as a constituency MP, I spent a lot of time on a few years ago. Thirty years ago today, Suzanne Capper had a funeral and was buried after having been tortured for a week and murdered. I was not an MP 30 years ago, but it was in my constituency. She attended the school that I had attended many years before. It was a horrific case. Four people were convicted of her murder; three have been released, and one is up for parole. In the 1960s, the four people found guilty would have been hanged. I am against capital punishment, but I want the public to have confidence in the justice system. They were guilty of a crime every bit as horrific as the moors murders—Brady and Hindley were never released. Even though three of them have been released since I made representations to the Parole Board on behalf of Suzanne Capper’s mother, which were effectively ignored, I believe that one of the murderers should not be released.
When people learn that three of the murderers, and potentially a fourth, will be walking the streets of this country after that terrible murder, they will not think that justice has been done. I would like an assessment not just of how the Parole Board operates but of who is considered for parole. I do not think those murderers should have been. Although one cannot just use the general view that they should not be, I think there is a sense, when people such as that are walking the streets of this country, that justice has been undermined and has not been done.
Those three cases have brought me, as a constituency MP and as somebody who has been watching what has happened to the Parole Board, to consider that the Parole Board should be reformed in many ways. When the Science and Technology Committee took evidence, virtually all the witnesses said that the Parole Board previously operated in private—in secret. Sometimes it made decisions just on the papers in front of it, sometimes it listened to the criminal, and sometimes statements from the victims were read out. We all accept in court cases that justice must not only be done but should be seen to be done, but that has not been the case with the arguments the Parole Board considers. There may be a case for keeping some privacy, because victims and their families may be mentioned, but when a decision is taken to release back into the community somebody who has done appalling things, the public are entitled to know what the basis for that was and what the arguments and evidence were.
Liz Saville Roberts
I apologise for not making a speech today, but I am meeting Rhianon Bragg, whose case I raised in Justice questions. She has now received a letter of apology from the Secretary of State for Justice. Her medical, mental health details were given in a dossier to her abuser. She had previously applied to the Parole Board for his release hearing to be held in public, and that has been refused.
This mistreatment of a victim by the criminal justice system in itself warrants a public Parole Board hearing, because the public need to know why that happened. She has now been advised to apply to attend the Parole Board hearing in private but, frankly, this case is an example of it being in the public interest of justice for there to be an appeal procedure for the Parole Board. Far more Parole Board hearings should be in public, as the hon. Gentleman is calling for.
Graham Stringer
I agree with the right hon. Lady, and thank her for her intervention.
We do not only want transparency; there needs to be an examination of the statistics. We were told on the Science and Technology Committee that the percentage of prisoners applying for parole and getting it had gradually increased over the last 25 years from 10% to 30%—that is a huge change. My suspicion is that, even though it will not be down in writing, there is tremendous pressure on the number of people in prison. There is tremendous pressure on the costs; it costs a lot of money to keep somebody in prison. Somewhere in the background, without it being stated explicitly, there is pressure to get more people out, and that—probably—means that some people are being released into the community who are a risk to it.
The statistics on reoffending appear to be small. We were told on the Committee that in recent times 12 people have been released who have committed murder, and there have been a number of other serious crimes. As percentages, those are very low, but obviously those crimes are an absolute catastrophe for every family who has lost somebody to a murderer, and for the person who was murdered, and an indication that something has gone seriously wrong.
The Parole Board keeps for three years statistics on offences by people released on parole. When we questioned the chief executive of the Parole Board, we were told, “Well, after three years there is not a lot to learn, because Parole Board members may have changed and the process may be slightly different.” I do not accept that. Many of these prisoners are in for life, and the statistics that are kept should be kept for the whole of their lives, until they die of natural causes or go back to prison, so that we really know what is happening.
There was also a serious conflict of evidence between the Parole Board and some of the academic witnesses about how likely repeat offending was. According to the notes we had as Committee members, and what was said, there was a 25% reoffending rate for sexual offences against children who were non-family members. I have to say that the Parole Board did not accept that figure, but the academics were clear.
The other dispute over the evidence was that, in looking at the three-year period, many of the academics said that there is a curve showing that offending for certain offences was more likely the longer the period. Again, the Parole Board disputed that. If there are good records, these things can be verified factually; we should know what the answer is.
When it comes to the process of deciding whether somebody should be released, the Parole Board has limited tools. Psychiatrists and psychologists give reports. I say as a scientist, as well as a member of the Select Committee on Science and Technology, that sciences such as astronomy and many other branches of physics are predictive: we know where Saturn or Mars will be in 10 months, 10 years or 100 years.
Psychiatry and psychology are not predictive. The evidence before the Science and Technology Committee was that the psychiatric and psychological methods used for assessment were 20 years out of date, and that there were better ways to do it. Even with the better ways, there is no certainty around the risk of a prisoner reoffending. Even though the tools used at present are better, they are limited.
The second point is that statistically, given a series of factors, prediction is more accurate. On a statistical basis, it can be said that, given those factors, 2% of prisoners will reoffend, but we do not know which 2%. It is important to know the risk, but none of that gives a guarantee that a person will not reoffend. It is worth considering that against the background of the large increase in the number of people being released back into the community.
I have tried to stay with the factual basis of what the science says, what the science can and cannot do, and the practical mistakes made by the Parole Board. We heard very concerning evidence that a sex offender treatment programme increased rather than reduced the chance of reoffending. That programme should be looked at. There should be a clear definition of what is meant by public protection and how it is measured. In addition to that sex offender programme, there should be a proper assessment of all rehabilitation programmes and where they take place.
I have already mentioned that Worboys was a category A prisoner when a decision was taken to consider him for parole. We were told that he was not on his own. We were also told that it was almost unheard of 25 years ago for category C prisoners to be considered for parole, let alone categories B and A. That seems to be one reason for the increase in prisoners being released. The previous process of rehabilitation programmes in prison, with people moving down the category list into open prisons, is less common, although it has not been abandoned. There are certainly many exceptions to that rule. We did not hear any reasons why those exceptions had been made.
I have talked for quite a long time. These issues are important—I know our constituents consider them to be important—and very difficult ones. I refer people who think that the Parole Board can be objective to what I think is not a nice but a rather brilliant film by Stanley Kubrick, “A Clockwork Orange”. It has a different ending, incidentally, from that in Anthony Burgess’s book. Had he been alive, Burgess would have been at one time a constituent of mine; he was born and brought up in my constituency.
Alex DeLarge, the villain of the piece—a hooligan and rapist—goes through all sorts of psychological brainwashing processes to turn him into a model citizen. At the end of the film, when the establishment says, “This has worked; we have now turned Alex into a decent human being”, he turns round and winks at the camera. In a rather unpleasant way, that is a celebration of how the human spirit cannot be brainwashed and he, one guesses, is still the nasty person he was at the beginning of the film.
The Parole Board has a difficult job in assessing cases. It is a necessary job, but it has gone away from the standards of evidence and from being able to tell us that it has been thorough with the procedures. In two of the cases that I have brought up, the Parole Board has failed to tell the victims and families, and that should be an impediment to somebody leaving. The probation service wrote to me and said that it is difficult to find families 20 years later. It might be difficult, but if it uses the local press and tells people and is transparent, it might be a great deal easier to find members of families who have moved and changed their telephone numbers.
I am not saying that the Parole Board’s job is easy—it is difficult—but it has not been done as thoroughly and well as it could have been. People have been put at risk and potentially put at risk. The Government need to change the policy on the basis of the evidence and make sure that the public are secure by not allowing some people to get parole and by making sure that they are as certain as they can be that some other people pose no risk to the public.
Jim Shannon (Strangford) (DUP)
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Alex Cunningham (Stockton North) (Lab)
It is a pleasure to serve under your chairmanship, Mrs Murray. I congratulate my hon. Friend the Member for Blackley and Broughton (Graham Stringer) on having secured this hugely important debate to highlight the urgent challenges facing the parole system. Much of my speech will reflect and build on his concerns.
My hon. Friend mentioned the deeply distressing case of Andrew Barlow, formerly known as Andrew Longmire, and I echo his concerns. I, too, welcome the Lord Chancellor’s referral of the case back to the Parole Board for reconsideration that was announced yesterday; it is a testament to the hard work and campaigning of the victims. I also put on record my admiration for my hon. Friend and the vital work he has done, championing those victims’ cause in Parliament. As a former journalist, I also commend the role of the media in this particular case. However, it is totally unacceptable that the victims and their families did not receive the expected prior notification of Barlow’s planned release. Sadly, as highlighted by the hon. Member for Strangford (Jim Shannon), such failures are regularly repeated.
I am aware that the head of the Parole Board has expressed regret at the fact that some of Barlow’s victims were not informed, but that is simply not good enough. I note that when Sonia Flynn, the chief probation officer, gave evidence to the Science and Technology Committee last year, she confirmed:
“It is in statute that we must consult victims of serious crime on their view of release, and for them to also give our victim liaison officers a view regarding the protections that we need to put in place to reduce their concerns about that individual if the Parole Board does choose to release—particularly the obvious concern that they could bump into them in the street.”
It is deeply worrying that, even with a case as serious as this one, mistakes have been made.
I was horrified to learn that one of the victims, who still has nightmares three decades on as a result of the horror of Mr Barlow’s offending, only found out about his potential release, as we have heard, by reading the Manchester Evening News. We cannot allow our justice system to continue to treat victims as an afterthought. All of Andrew Barlow’s victims should have been signed up to the victim contact scheme and received communications from a victim liaison officer regarding how long he would be in prison, when he was up for parole and when he was likely to be released. They should have been told how to make a victim’s statement at the parole hearing. Such failings can retraumatise victims and seriously damage the public’s confidence in our justice system.
The Parole Board’s statutory purpose is to ensure that people who are dangerous are not released back into the community. It is a system designed to ensure public safety and to protect victims of crime, but after 12 years of Tory incompetence and chaos, our justice system is on its knees. Before the Minister uses the P-word, let me say that it was chaotic before the pandemic. Public confidence in the system is already near breaking point and with each further failing it gets closer to collapse. The Sentencing Council’s 2022 research report tells us that 45% of those surveyed were not confident in the criminal justice system’s effectiveness and 44% were not confident in its fairness. Does the Minister share my shock at those statistics? Public trust, efficacy and fairness of criminal justice are vital, or we will see fewer victims coming forward to report crimes and even greater numbers withdrawing midway through the process.
The 2019 Conservative manifesto promised to support all victims of crime and do right by victims, but the Government simply have not addressed these ongoing problems. How can year-long court delays and chronic staffing shortages from one end of the system to another contribute to a system that is doing right by victims? The Minister will not be surprised by my next question: when will the victims Bill come before the House?
It is clear to us all that the Government have completely lost their grip on criminal justice. Labour is the only party that can be trusted to deliver on law and order. We know that careful parole decisions are essential to reducing reoffending and its costs to society. Reoffending costs our society an astonishing £18 billion each year according to the Government’s own figures. Changes to the parole system introduced by the Government in June last year prohibit probation officers from giving a view or making recommendations to the Parole Board on progression or release of prisoners, thus removing an important element of professional expert knowledge from the process. In his evidence to the Science and Technology Committee, Martin Jones—CEO of the Parole Board—emphasised this expertise by saying,
“It is really important to make the point that we get evidence from prison and probation officers on whether a person is safe to be released or not, and work by the Ministry of Justice some years ago suggested that 90% of our decisions are in line with the evidence provided by report writers. That provides some evidence of consistency.”
In July last year, the three recognised Probation Service unions—Napo, Unison and the GMB—penned a letter to the Secretary of State with warnings about the serious consequences of the decision to prevent probation staff from making recommendations in written reports and oral evidence to the Parole Board under any circumstance. The ability to do so has long been a vital and valued part of the parole process. The unions warned that the decision
“severely endangers the ability of the Probation Service to protect victims of the most serious offences, and indeed the wider public, from the risk of serious harm posed by many individuals involved in the parole system.”
It further de-professionalises this vital public service role, leading to staff demoralisation, and exacerbating the retention problems that the Probation Service already faces. Prison and probation officers work hard day in, day out to deliver justice, and yet again they have been dismissed, undervalued and let down by this Tory Government. Speaking to the Ministry of Justice last year, a senior probation official said:
“It is extremely difficult and very disappointing that the Parole Board is the last to hear about important decisions which strike at the very heart of the difficult decisions we are asked to make. It makes our members’ already difficult job close to impossible.”
In fact, Napo members raised concerns about having to supervise someone in the community who they would not have recommended for release. They talked about the extreme stress that could cause, as well as the increased risk of further serious offences.
I am interested to hear from the Minister why removing probation recommendations was not included in the root-and-branch review of the Parole Board, and why there was no prior consultation with all stakeholders before the changes were implemented. Napo is concerned that removing professional recommendations in parole will lead to inappropriate releases and the non-release of those who otherwise may have been granted parole. Will the Minister share what impact assessment has been carried out on that particular issue, and confirm whether the Government sought the views of the Parole Board itself about having to make release decisions without expert witness recommendations?
The changes allow for the Secretary of State to make recommendations. That happens only in the most serious of cases—around 150 of the 6,000 that the Parole Board deals with each year. The remaining cases will now have no recommendation given, which seems astonishing to me. I ask the Minister for further information on the so-called “critical few” cases that the Secretary of State will be involved in. Can the Minister share how many oral hearings have been attended by a Secretary of State’s representative in recent times? In how many of those oral hearings did the Secretary of State’s representative recommend no progression—either from closed or open conditions, to open conditions from closed conditions, or release on licence?
Public hearings, the other major change introduced last year, were consulted on via the root-and-branch review. My hon. Friend the Member for Blackley and Broughton mentioned that as well. Personally, I am in favour of increasing the transparency of such hearings. When done properly, they could help to improve public confidence in the system. I know there have been only a few public hearings since their introduction, but could the Minister provide an update on how they are running, and how much engagement there has been with them? I understand that a remote link has to be set up to allow viewing, so I assume the Government have some sense of how many people are attending.
Finally, our probation service is still reeling from the reckless transforming rehabilitation programme, a failed experiment in privatisation. That disaster proceeded because the then Secretary of State, the right hon. Member for Epsom and Ewell (Chris Grayling), failed to listen to the warnings of those with the wealth of experience and expertise. I sincerely hope the current Secretary of State does not make the same mistake with parole.
The Minister of State, Ministry of Justice (Damian Hinds)
It is a great pleasure to see you in the Chair and serve under your chairmanship, Mrs Murray. I congratulate the hon. Member for Blackley and Broughton (Graham Stringer) on securing this important debate. His speech was thoughtful, deliberative and balanced. He spoke in the light of some of the most appalling and horrific crimes, murders and rapes that we have known in our lifetimes. The thoughts of all of us in this House are with the victims of those terrible crimes and their families. Their loss—their tragedy—does not dim with time. As the hon. Member for Strangford (Jim Shannon) said, victims must always be paramount in the system. The system must work for them and must be seen to do so.
I am pleased to have the opportunity to speak about the vital and difficult role that the Parole Board plays, as the hon. Member for Blackley and Broughton said, in protecting the public by making decisions about the release of some of the most serious offenders in our system. It is critical that the parole system works as effectively as possible to keep the public safe. That is, and must be, the top priority. The hon. Gentleman mentioned the September hearing of the Science and Technology Committee, of which he is a member. I have read the transcript of that hearing and agree that it was important and useful. He rightly said that statistics are important, as is understanding the statistics. He also said, and he was right, that statistics can only ever take us so far, because a serious reoffence is the most complete catastrophe—I think those were the words he used—for an individual and their family.
He made a specific point about reoffending statistics. I want to clarify that under the probation serious further offence procedures, His Majesty’s Prison and Probation Service captures data on every serious further offence that is committed by an offender who has been released by the Parole Board, regardless of how long afterwards that serious further offence was committed. I will write to him with the data behind that.
As has been mentioned by Members, including the Opposition spokesperson, the hon. Member for Stockton North (Alex Cunningham), the Government conducted a root-and-branch review of the parole system, which was published last year. It set out our proposals for making further improvements. I will say a little about the measures that we are taking, as well as seeking to address some of the points that colleagues have made.
We have heard about the impact on victims when offenders are considered for release by the Parole Board. I pay tribute to the hon. Member for Blackley and Broughton for his unfailing support for constituents who have been so dreadfully affected by serious offending. These are difficult and deeply distressing times for them, and I want to apologise to any who have not received the service that they should have. Their experiences demonstrate why it is so important to ensure that they, and the victims of other terrible crimes, are properly supported.
To that end, I will explain the measures that we are taking to improve the way the victim contact scheme operates, particularly when it comes to tracing and working with victims of offences that were committed before the scheme was established. I hope my comments about the action that we are taking will reassure colleagues about how seriously we take these matters and that, despite the problems that sometimes regrettably occur, we do have an effective system for keeping victims informed about the parole process.
One of the Government’s priorities, as set out in the root-and-branch review, is to improve openness and transparency. We want to enhance public understanding and bolster confidence. It is clear that in all cases, victims need to be kept updated on what is going on in their case, and we are looking at ways to improve that.
Before I say more about our plans to reform the system, it might be helpful if I first briefly go through the legislative framework within which the Parole Board operates. The Parole Board’s purpose is to decide whether prisoners convicted of serious, violent or sexual offences, who are serving certain types of sentences, can be safely released into the community on licence. The sentences dealt with by the Parole Board include life sentences, indeterminate sentences for public protection, extended determinate sentences and the sentences of those who are recalled to prison for breaching the terms of their licence. When passing sentence, the trial judge will set a minimum custodial period, which the offender must serve in prison for the purposes of punishment and deterrence. Once the minimum period has been served, the Secretary of State is required to refer these cases to the Parole Board so that the prisoner’s suitability for release on licence can be considered.
That decision is about the offender’s current risk, having completed the part of the sentence that the judge has said must be spent in prison for the offences committed. The wording of the statutory test for release is clear. The Parole Board must not give a direction for a prisoner’s release unless the board is satisfied that it is no longer necessary for the protection of the public that the prisoner be confined in prison. When applying the public protection test, the Parole Board needs to consider whether there is a risk of serious harm. If release is directed, the Secretary of State must comply with that direction unless it appears legally flawed, in which case the Secretary of State has the power to ask for the decision to be reconsidered.
The Parole Board is an independent body with expertise in risk assessment. It takes robust and fully-evidenced decisions. The board takes public protection very seriously. In around three out of four of the cases that are referred to the board, it decides to keep the offender in prison for the protection of the public. Where the board does direct release, less than 0.5% of the people in those cases go on to commit a serious further offence within three years. Any serious further offence is, of course, a tragedy and is fully investigated. The vast majority of offenders released by the board do not go on to cause serious further harm.
The hon. Member for Blackley and Broughton raised the Worboys case. That awful case highlighted the need for improved transparency, especially for victims, about the reasons for a Parole Board release decision. As the hon. Gentleman will know, in 2018 we introduced decision summaries, which are now routinely provided to victims and others to explain why the board has directed a prisoner’s release. The case also highlighted the need for a better and easier way to challenge parole decisions if they can be shown to be flawed. That led to the introduction in 2019 of the reconsideration mechanism, which the Secretary of State uses in cases in which he considers that a release decision should be looked at again.
We intend to go further to ensure that the system is as robust as possible. The root-and-branch review set out key proposed reforms that aim to ensure that public protection is the overriding consideration for release decisions and to introduce additional safeguards into the system.
Graham Stringer
I thank the Minister for his kind remarks. Will he respond to the two points that I made in the area that he is considering at the moment? One was that there seems to be an unexplained and dramatic increase in the 25% of prisoners who, as he just mentioned, are being released. The other was that category A, B and C prisoners are also being recommended for parole, which was not previously the case.
Damian Hinds
I will respond to the hon. Gentleman on the precise numbers in correspondence, if I may. The important point is that every case is considered individually on its merits; that has to be at the heart of how the Parole Board goes about its business.
We will make the release test more prescriptive, so it is absolutely clear that prisoners should continue to be detained unless it can be demonstrated that they no longer present a risk of further serious offending. Secondly, for a top tier of the most serious offenders—I think that the hon. Member for Stockton North asked for clarification on what the tier consists of; it is those sentenced for murder, rape, causing or allowing the death of a child, and terrorist offences—we will legislate to give Ministers the power to refuse a release decision made by the Parole Board if they disagree with the board’s view that the release test has been met. That will provide an additional safeguard and, I hope, further reassurance to victims that for the most serious offenders, including murderers and rapists, there will be oversight by Ministers, who will be able to prevent release if that is considered necessary to keep the public safe.
Thirdly, we will legislate to ensure that the Parole Board’s membership includes more people with law enforcement backgrounds, who will sit on panels dealing with the most serious cases. Having more members who are, for instance, ex-police officers with first-hand experience of tackling crime in our communities and dealing with serious offenders will further enhance the Parole Board’s expertise in assessing the risk such offenders present. The measures that I have described will require primary legislation, which, to respond to the hon. Member for Blackley and Broughton, we will introduce at the earliest opportunity.
We have already taken other steps within the system to enhance public protection and increase confidence. For example, we have reformed the way indeterminate sentence prisoners are moved to open prison conditions, and Ministers can block such moves if they do not meet new, tougher criteria. Also, we have introduced a new system whereby Ministers can submit an overarching view to the Parole Board about release in some of the most serious and troubling cases before any decisions are taken. That ensures that it is made very clear to the board at the outset if there is a case where Ministers would be opposed to the prisoner’s release.
I return to the important issue of victims’ experience of the parole system, which is at the heart of the case that the hon. Member for Blackley and Broughton made, and the measures that we are taking on it. When offenders are being assessed for release by the Parole Board, it can be a very difficult and distressing time for victims. We want to improve the way victims are engaged in that process, give them additional opportunities to hear about what is going on, and make them feel and know that they have more of a voice.
The mechanism by which victims are kept informed about parole is the victim contact scheme, which is operated by the probation service. It was first established in 2001 and applies to victims of sexual and violent offending where the offender is sentenced to imprisonment of 12 months or more. Victims who have signed up to the contact scheme should always be notified when a prisoner is coming up for potential release.
Victims have a choice about joining the victim contact scheme. If they choose to join, they will be kept up to date with key developments, including prisoners’ parole reviews, parole decisions and release decisions, by a dedicated victim liaison officer. During parole cases, victims can make a victim personal statement to the board, setting out the impact of the offence against them, and they may read it aloud to the Parole Board panel if an oral hearing is convened.
Victims also have the legal right to make requests about licence conditions, including a no-contact condition and an exclusion zone that prohibits the offender from entering areas where the victim lives, works or travels to frequently. Victims can also request a summary of the Parole Board decision and, where the Parole Board has directed release, they can ask the Secretary of State to consider applying to the Parole Board for the decision to be reconsidered.
It should be noted that some victims choose not to sign up to the victim contact scheme. Understandably, they may seek to do what they can to put the events of the case behind them. If there is no response to a second and third invitation to join the scheme, the probation service will properly respect their wishes and not keep contacting them. Victims can, however, join the scheme at any time, even if they have previously said no. A system in which all victims are notified about parole releases would not be practical for a number of reasons. For example, as I have said, not all victims will want to receive information, and unwanted contact from the service could retraumatise them.
The scheme was set up in 2001. For cases in the system before then, in relation to the victims of offences committed many years ago, it does not operate retrospectively. However, in the most serious and notorious of cases, such as some of those that have been referred to in this debate, the probation service should ask the police, through multi-agency public protection arrangements —known as MAPPAs—for support with tracing victims. In the Andrew Barlow case, which the hon. Member for Blackley and Broughton talked about, the Greater Manchester probation region is working with Greater Manchester Police to trace victims of the offences that Mr Barlow committed in the 1980s and 1990s and invite them to join the victim contact scheme. I should also confirm that, as has been said, my right hon. Friend the Deputy Prime Minister and Secretary of State is applying to the Parole Board to reconsider its decision to direct Mr Barlow’s release on life licence. Probation victim liaison officers will keep victims in the scheme informed of progress with the application for reconsideration.
As for the measures we are taking to make further improvements, particularly to increase transparency and the information available to victims and others, we committed in the root-and-branch review to allowing victims to observe parole hearings for the first time. We also confirmed that we would change the rules to allow for public hearings in some cases. I know that that has come up this morning, and I will say a little bit about the progress that has been made on both those commitments.
Since October last, victims have been able to observe Parole Board hearings as part of a testing phase that is running in the south-west probation region. During the hearings, victims are supported by probation staff, who discuss the parole process with them and ensure that they are directed to relevant support. We are working closely with the Association of Police and Crime Commissioners to ensure that tailored local support services are readily available, should victims require. We recognise that it could be retraumatising for a victim to hear the evidence that is explored during a parole hearing, so we are initially conducting a relatively small-scale testing phase to ensure we get the processes and support arrangements right. My paramount concern is to ensure that victims can observe the hearing in a way that is safe for them while not compromising the Parole Board’s ability to conduct a fair and rigorous assessment of risk.
The hon. Member for Stockton North asked for an update on progress. During the testing phase so far, victims have welcomed the opportunity to observe hearings. Following their feedback, we are working to improve the process to prepare for its expansion across England and Wales.
Last year, having made changes to the Parole Board rules, we also saw the first public Parole Board hearing, which was in the case of Russell Causley in December. A second public hearing has been agreed by the board and will take place this year in the case of Charles Salvador, formerly known as Charles Bronson. These changes will help to improve public understanding and awareness of the parole process.
In the root-and-branch review, we also committed to reviewing the current guidance and requirements for providing victims with information about the parole process. Our review will identify areas for improving the information that victims currently receive through the victim contact scheme. We will ensure that, where victims have requested it, they receive effective, clear and timely communication about the parole process so that they are sufficiently informed as their case is progressed.
As part of the primary legislative reforms that I referred to earlier, we intend to require the Parole Board to consider written submissions from victims about the release of the prisoner. That will be in addition to the victim personal statement that victims are already permitted to make to the board. Again, that is about doing more to give victims a voice and an opportunity to put their concerns and views to the Parole Board.
I want briefly to cover a few other points that came up during the debate. The hon. Member for Blackley and Broughton raised the sex offender treatment programme. The SOTP was discontinued in the light of research evidence, and a new treatment programme has been introduced, which relies less on group work.
The right hon. Member for Dwyfor Meirionnydd (Liz Saville Roberts), who is no longer in her place, indirectly raised a couple of points—one of which was also raised by the hon. Member for Stockton North—about the important issue of what is in the dossiers that are brought to the Parole Board and the content that comes from different perspectives and analyses. They both asked about not having individual staff recommendations. Reports will continue to provide all the same information, evidence and assessments about the prisoner as they currently do, with the exception of a recommendation or review from the report writer. The reason for that is that it is the Parole Board’s responsibility to decide whether the prisoner is safe to be released or should stay in prison for the protection of the public, based on the entirety of the evidence received. The written reports, including those from prison, probation and psychology staff, and the questioning of witnesses at oral hearings, will continue to provide all the evidence the board needs to enable it to reach fully informed decisions.
Alex Cunningham
The point about the information staff provide and how confident they are that it is being shared is important. I mentioned that staff appear to be concerned that we are releasing prisoners they would never have recommended be released. What does the Minister have to say to them about the credibility of information that is before the Parole Board, and the confidence in the decision?
Damian Hinds
As I am sure the hon. Gentleman recognises, the situation he describes could have happened anyway. I reassure him and other colleagues that this is not a diminution of the information that goes into the risk assessment. All of that information is still there, and that totality of information will be considered in the round.
The right hon. Member for Dwyfor Meirionnydd and the hon. Member for Stockton North asked about the impact assessment on changes to the recommendation system. The right hon. Lady specifically asked about impact on minority ethnic offenders. I want to reassure them that that impact is being monitored, though it is too early to assess on a segmented basis. It is important that we keep such matters under review.
I hope I have been able to provide some reassurance that, through the actions the Government are taking, victims’ concerns and the protection of the public are at the heart of our vision for the future of the parole system. I am grateful for the opportunity to respond to this important, thoughtful and measured debate, and thank everybody who has taken part—in particular the hon. Member for Blackley and Broughton, who secured it.
Graham Stringer
I thank the Secretary of State for applying for reconsideration, and I thank the Minister and right hon. and hon. Members who have participated in the debate, which I agree has been thoughtful. I hope it has brought to light some of the procedural failings of the past that need to be put right, and that there are worrying gaps in the information available, the statistics and the trend in those statistics, particularly the increase in the number of prisoners getting parole. There appears to be no obvious reason for that, and we need to understand it. Thank you for chairing the debate, Mrs Murray.
Question put and agreed to.
Resolved,
That this House has considered the future of the Parole Board.
