Criminal Cases Review Commission (Information) Bill — House of Commons, 2016-02-05
Topic: Law and Crime
William Peter Wragg (Conservative, Centre-right): I thank my hon. Friend for that intervention, and as he will see by the vast numbers of Labour Members here today, the influence of that signature has been a fantastic achievement The CCRC was set up in the wake of notoriously mishandled cases such as those of the Guildford Four and the Birmingham Six—two high-profile cases where two groups of men were convicted and imprisoned for connections to bombings carried out by the IRA in the 1970s. On a serious note, it was because of those particular cases that the Leader of Her Majesty’s Loyal Opposition was so keen to lend his signature to the Bill However, some 10 or 20 years ago these convictions and a review of evidence and police conduct during the investigation revealed serious breaches of due process, and, in the case of the Birmingham Six, serious accusations of police brutality. Therefore, the convictions were eventually quashed and ruled as unsafe. Moreover, senior police officers in both cases were later charged with conspiracy to pervert the course of justice and the Birmingham Six were eventually each awarded compensation ranging from £800,000 to £1.2 million for their wrongful conviction The consequences of these cases led, in 1991, to the Government setting up a royal commission on criminal justice. The royal commission reported in 1993 and led to the Criminal Appeal Act 1995, which established the CCRC in 1997. Parliament established the CCRC specifically for the body to be independent of Government and, although sponsored and funded by the Ministry of Justice, to operate its statutory functions independently. However, a drafting anomaly in the 1995 Act meant that a key power was omitted from the CCRC, meaning that it could not require evidence to be provided from privately held sources, whether individuals, corporations or other bodies. It is the need to address that anomaly that brings us here today In preparing to present the Bill to Parliament, I visited the Birmingham headquarters of the commission to meet its chairman, chief executive, head of casework, some of its case handlers and investigators, and other staff to see its facilities and operation at first hand. I am delighted to say that some staff have been able either to attend the House today or to watch the proceedings from Birmingham. The House should be clear that the commission is very keen for the Bill to pass and to have these powers, for which it has been calling for some years. I want to take this opportunity publicly to thank the staff of the CCRC for hosting me on my visit, and for all the information, support and advice it has provided to me over the past few months. In particular, I would like to thank long-serving staff member and senior case handler Mr Miles Trent, who has been a very valuable help I shall go on in a moment to explain precisely how the Bill will address the original anomaly in the law, which has prevailed for almost 20 years. Before doing so, however, I think it is important that the House bears in mind why the Bill is important. I wish to remind Members of the real human stories behind what can seem the rather dry business of legislation and regulation. Anyone who has ever been subject to a miscarriage of justice will attest that it is a deeply traumatic and damaging experience, often taking years away from somebody’s life while they work through the appeals process, trials and retrials, often from the confines of a prison cell. While not an easy or pleasant experience for anyone at any time, the heartache and anguish will be more acute for those who know, in the back of their mind, that they are innocent and that the British justice system has failed them. In such cases, the CCRC is often a victim’s only opportunity of salvation Although the number of cases the CCRC takes on is small compared with the overall number of criminal prosecutions each year, and the number of cases referred and quashed is even smaller, for those few victims of a miscarriage of justice in prison for crimes they have never committed, and subject to the abuses of process and powers of the system, it must be a truly harrowing existence for both them and their families. If I may, I would like to illustrate this point with one particular case which, although upsetting, contextualises the importance and seriousness of the commission’s work. I should say before continuing that this case has already been on the public record Sally Clark, a solicitor aged 42, was jailed in 1999 for allegedly killing her 11-year-old son Christopher in December 1996 and her eight-week-old son Harry in January 1998. An appeal in 2000 failed, but she was freed in 2003 after a fresh appeal, following a referral from the CCRC. The jury at the trial was told by an expert witness, Professor Sir Roy Meadow, that the probability of two natural unexplained cot deaths in the family was 73 million to one, a figure for which the Royal Statistical Society later said there was no statistical basis. However, despite her eventual release from prison after four years, Sally Clark died at her home in March 2007 from alcohol poisoning. At the time, the chair of the CCRC, Professor Graham Zellick, said: "Sally Clark should never have been convicted. She should have succeeded at her first appeal. It should never have taken two years’ work by us and a referral before she was released, by which time she was broken in mind and body." Our justice system is one of the most respected in the world, but mistakes can and do happen occasionally. When this is the case, the system to right the wrong and to protect innocent people should be strong so that we avert cases such as Mrs Clark’s. My Bill seeks to strengthen that system. I referred to the legislative anomaly in the original 1995 Act, which gave rise to the need for the Bill. Let me explain how the CCRC currently operates The CCRC currently has the power to investigate alleged miscarriages of justice in England, Wales and Northern Ireland, and to refer convictions and sentences to the relevant courts for appeal. The commission investigates convictions and applications by the offender, or, in the case where the offender has died, at the request of relatives. It has special powers to investigate cases and to obtain information it believes is necessary to review a case. If the CCRC concludes there is a realistic prospect that the Court of Appeal will overturn the conviction, it can make what is termed a referral and send cases back to court so that an appeal can be heard. Applications are free to make to the CCRC and defendants cannot have their sentences increased on account of having made an application for review. However, as the commission usually deals with cases already appealed once, if the commissioners can send cases for a review, it is usually on account of new evidence or a new legal argument that has come to light. This being so, their ability to gather information is critical to a successful operation The subject of the Bill hinges on what are commonly referred to as section 17 powers. Section 17 of the Criminal Appeal Act 1995 gives the CCRC the power to require public bodies and those serving on them to give it documents or other material that might assist it in discharging its functions. This includes the police, local councils, the NHS, the Prison Service and so on. It should be clear how all such bodies could and do serve as vital sources of information in appeal cases: the police provide criminal evidence and interviews; councils often provide CCTV footage; the NHS can supply details of injuries, in the case of violent crime; and the Prison Service can provide vital information about the behaviour or statements of prisoners seeking an appeal Those are just the most common examples of public sector sources of evidence on which the CCRC relies to do its work. There are, of course, dozens of others. However, it currently has no equivalent powers to compel private organisations and individuals to provide similar information, and has long found this to be a problem. Incidentally, this is in contrast to its counterpart in Scotland, the Scottish Criminal Cases Review Commission, which has held these powers since its inception. The Bill would allow the CCRC to make an application to the courts to require the disclosure of new evidence held by private bodies and individuals. As I mentioned, it already has those powers for public bodies. The inability to obtain information from private organisations and individuals has limited the CCRC’s actions and can cause unnecessary delay in the review of cases it undertakes and waste its limited resources During my visit there, I learned that the CCRC operates with an annual budget of about £5.5 million and employs just under 90 staff, including 12 highly experienced commissioners, among whom were senior lawyers, civil servants, investigative journalists and scientific experts. Each year, it receives between 1,000 and 1,500 appeal applications, and last year, 39 of them were referred back to the Court for review.