My Lords, the first thing I need to say is happy birthday to the Minister. I am sure noble Lords will agree with me in wishing him all the very best. I am not sure that this is the best way I would choose to spend my birthday.
As I said at Second Reading, we on these Benches generally support the sexual harm prevention orders and the sexual risk orders as set out in Part 9 of the Bill. The two new orders will replace existing powers, and the threshold for risk will be lowered to cover any case of sexual harm, not just cases of serious sexual harm. These orders seek to improve the protection of vulnerable children at risk of sexual harm. On Report in the Commons, the Minister, Damian Green, provided details of the two new orders. He explained:
“The sexual harm prevention order may prohibit the person from doing anything described in it, including preventing travel overseas. Any prohibition must be necessary for protecting the public in the UK from sexual harm or, in relation to foreign travel, protecting children or vulnerable adults from sexual harm.
It lasts a minimum of five years and has no maximum duration, with the exception of any foreign travel restrictions which, if applicable, lasts for a maximum of five years but can be renewed”.
The sexual risk order,
“will be available for those who have not been convicted of an offence but who none the less pose a risk of sexual harm to the public. It may be made by the magistrates court on application by the police or the new National Crime Agency where an individual has done an act of a sexual nature and poses a risk of harm to the public in the UK or adults or vulnerable children overseas”.
Of course, any prohibition in the sexual risk order must be necessary for protecting the public in the UK from sexual harm or for protecting vulnerable adults abroad. Such an order, as I have described it, will last for a minimum of two years. The police are very keen on these orders as their view is that they do not have the right measures at their disposal to intervene to prevent harm to children. We agree with them.
It is also welcome that these orders simplify the current system. In relation to non-conviction behaviour, they reduce the number of acts of harm required for an order to be used from two to one, which means that they can be obtained more easily. Extending the scope of sexual behaviour covered by the orders and lowering the threshold from serious sexual harm will also increase their use. This will help tackle behaviour that poses a risk of sexual abuse to children but which has not yet translated into a criminal offence.
In the Commons, my honourable friend Ann Coffey MP noted:
“The risk of sexual harm orders, which the new sexual risk orders would replace, can be given only to offenders aged 18 and over”.
She asked the Minister:
“Will the new sexual harm prevention orders also only apply to offenders over 18? If they will apply to offenders under 18, what consideration has he given to introducing accompanying rehabilitative provisions for child sex offenders?”.
That is at the heart of what this probing amendment is about. At the time, the Minister, Mr Green, said:
“The two new orders will apply to both over-18s and under-18s”.
He also clarified the situation in relation to the sex offenders register:
“In line with the old order, the new sexual harm prevention order will make the offender subject to the notification requirements for registered sex offenders—it will put them on the sex offenders register. For both new orders, in line with the existing position, breach is a criminal offence punishable by a maximum of five years’ imprisonment. Conviction for a breach of a sexual risk order would also make that individual subject to the sex offender notification requirements”.—[Official Report, Commons, 14/10/13; cols. 472-75.]
Extending the ability to use these orders to protect children under 18, including 16 and 17 year-olds, recognises that older children are still vulnerable and can be subject to child sexual exploitation and abuse. The inclusion of vulnerable adults to the SHPO and SRO is welcome. We know that young adults with learning difficulties or special educational needs are targeted by individuals looking to exploit them.
The amendment seeks to probe how the orders will work for young people under 18 subject to the orders and how they are supported. Some young people who are subject to the orders may also have been victims of
sexual exploitation, or become involved as a means of self-preservation, as was the case for a young person quoted in one of the briefs that I received. We are seeking safeguards from the Government for young people under 18 who are subject to the orders, to ensure that they receive the support that they need,
“including an assessment of their emotional, welfare and behavioural needs, therapeutic or educational support”.
We are concerned that a breach of the child SHPO without conviction or the SRO can result in five years’ imprisonment when a child has not actually committed a criminal offence. We know that custody may not be the most effective way to tackle children’s criminal behaviour, and I am sure that we all agree that custody for under-18s should only be used as a very last resort in the most serious and violent offences, so we must question whether this is appropriate where children have not been convicted of an offence. We are very concerned about the use of custodial sentences for under-18s subject to SROs or SHPOs obtained without conviction. That is why we have put forward this amendment.
What measures do the Government propose for under-18s subject to these orders? Will the Government consider prescribing the use of therapeutic support and/or education and an assessment of needs in guidance when the orders are applied to under-18s? Will the Government review and evaluate the effectiveness of the orders, such as rates of reoffending and the effectiveness of any assessment of needs, when they are applied to under-18s? It is important that we question the detail of how this will work for under-18s.
The Minister very kindly wrote to me on this matter and in his letter he mentioned that the Government will be,
“working closely with the Ministry of Justice on applications for orders relating to under-18s and will ensure that guidance is available to the courts and others to ensure that such cases are heard in the youth court as appropriate”.
Will that draft guidance be available before the Bill has completed its passage through your Lordships’ House? I beg to move.