Select Committee on Constitutional Affairs Second Report


1 Introduction


Leading debate

1. This has been a very busy year for the Committee, in which it has sought to establish itself as an influential voice in public debates relating to its core subject matter.

Constitutional Reform

2. In February 2004 we published an important Report on the Government's plans to reform the system for appointment of judges, to establish a Supreme Court and to abolish the office of Lord Chancellor. Shortly after we reported, the Government published its Constitutional Reform Bill, which started its passage through the House of Lords. Unusually, the House of Lords decided to establish a Select Committee on the Bill and also to carry over the Bill so that it could continue to be debated in the current session. Our Report and the evidence we took was extensively relied on in debate in the House of Lords, both in the Chamber and in the Select Committee.

3. We have returned to this subject in the light of the published Constitutional Reform Bill. In May and June 2004 we took evidence from Professor I R Scott, Hon Margaret Wilson, Attorney General, of New Zealand, Rt Hon Dame Sian Elias GNZM, Chief Justice of New Zealand, Rt Hon Thomas Gault DCNZM, President of the New Zealand Court of Appeal, and Rt Hon Sir Kenneth Keith KBE, a Judge of the New Zealand Court of Appeal, Rt Hon Lord Bingham of Cornhill, Senior Lord of Appeal in Ordinary, and the Lord Chancellor (with Sir Hayden Phillips GCB, the then Permanent Secretary of the Department for Constitutional Affairs) on questions relating to the administration of the proposed new Supreme Court and on the relations between the judges and Parliament. We also travelled to Australia and New Zealand to examine the practical arrangements for the Australian High Court and the recently established Supreme Court in New Zealand. The original proposals put forward by the Government have changed a good deal and in particular we note the announcement made on 13 December in debate in the House of Lords relating to Government policy on this topic. We shall make a further report on the subject in the light of changes made to the Bill.

Immigration and Asylum

4. We reported on the Government's proposed changes to publicly funded immigration and asylum work in Session 2002-2003.[1] We published the Government's Response to this Report as our Second Special Report in January 2004.[2] We returned to this issue in the course of our enquiry into Asylum and Immigration Appeals. That inquiry continued our examination of this subject, which we had announced on 28 February 2003. On 27 November 2003 the Government introduced the Asylum and Immigration (Treatment of Claimants, etc) Bill. The changes proposed in that Bill were the third major set of changes to the system of asylum and immigration in the last few years. Its most recent predecessor was the Nationality, Immigration and Asylum Act 2002. Originally, we had intended to examine the cost to public funds of supporting new appeal structures, such as the Asylum Support Adjudicators, and of supporting the extension of legal aid. This matter was overtaken in part by the Government's subsequent proposals relating to appeal structures contained in the Bill. One of the most controversial clauses in the Bill sought to introduce an "ouster" clause, which removed the jurisdiction of the Courts. We received a good deal of evidence about this clause from the judiciary and the legal profession. We reported in time for the Committee's views (which were highly critical of the "ouster clause") to be made known to the House; the clause was subsequently removed from the Bill, in accordance with our recommendations.

5. We have returned to the area of asylum and immigration with an inquiry into the legal aid arrangements for asylum and immigration appeals. We expect to report on this early in 2005.

Legal Aid

6. Legal Aid is one of the major areas of expenditure of the Department for Constitutional Affairs. It occupies almost two thirds of its budget. This is an obvious area for us to concentrate on. We carried out two inquiries which focused on Legal Aid in 2004. The first was Civil Legal Aid: adequacy of provision; the second was on the Draft Criminal Defence Service Bill.

Family Justice

7. The inquiry which has attracted the most considerable public interest is our inquiry into Family Justice. We have received over 150 submissions from judges, lawyers and members of the public. We have taken evidence from the President of the Family Division and other judges who preside regularly over Family Courts; we have heard from lawyers who practise in this area, as well as representatives of litigants', fathers' and children's organisations. We shall report on this early in 2005.

Relations between judges and Parliament

8. The cooperation of the judiciary is crucial for our work. One of the major issues surrounding the Government's proposals for abolition of the office of Lord Chancellor was the need for the judiciary to have confidence in arrangements for representing its views in Government and Parliament.

9. Early on in the Committee's life we reached an agreement with the Lord Chief Justice about the basis on which members of the judiciary would appear before us to give evidence. We are very pleased to report that we have received significant assistance from Her Majesty's judges in connection with our inquiry into the Government's proposals relating to the Constitutional Reform Bill, in our inquiry into system of immigration appeals, and in our current inquiry into Family Justice. We have established the Committee as a major conduit for the expression of the judiciary's experience and views on the working of the judicial system and on wider policy matters. We express our gratitude for the cooperation that we have received from the judiciary at all levels.

Scrutinising legislation

10. The Government's practice of sending draft bills for consideration is one which we fully support. Of course, there will always be a tension between the demands of examining a draft bill, which may require considerable allocation of resources, and the Committee's general programme of scrutiny. We carried out an inquiry into the Draft Criminal Defence Service Bill and, in the process, identified serious shortcomings in the Government's proposals. We refer to the lessons learnt from this process below [see paragraphs 28 and 29].

11. We did not restrict ourselves to examination of draft bills. As we noted above, we conducted an inquiry into aspects of the Asylum and Immigration (Treatment of Claimants, etc) Bill which fell within our area of responsibility. This inquiry was carried out quite swiftly in order to ensure that the House had the opportunity to read our views about the extensive changes proposed under the Bill. In the event, the Government changed its policy to a great extent along the lines advocated by us.

Scrutinising the Department

12. We are developing our scrutiny role in respect of the Constitutional Affairs Department. As we reported last year, the Department is in the process of major change. It is acquiring new responsibilities, such as oversight of the implementation of freedom of information legislation in the public service (on which we reported early in the current Session).[3]

13. In the course of preparing evidence for this inquiry a number of public bodies reviewed their preparations for implementation of the Freedom of Information Act. This was a demonstration of the impact which Committee inquiries can have, independently of what recommendations are made at the end of the process, because the process itself causes Departments and public bodies to review their policy and administration when preparing to give evidence.

Relations with the Department

14. Last year we reported that relations with the Department since our establishment had been generally good but that it was clearly taking the Department some time to get used to the requirements placed upon it by Select Committee scrutiny. We cited an occasion where serious difficulties had occurred because of the failure to ensure that a vital memorandum reached us in time to allow us to see it before we considered our final report. The Department is clearly making efforts to get used to having a Select Committee. Nonetheless, there have been occasions where it has failed to notify us in good time of particular events. For example, the Department forgot to tell us that it was publishing its Response to our Fourth Report Civil Legal Aid: adequacy of provision;[4] Committee staff found out about it from journalists who rang up after it had been published. On the positive side, the Department has shown itself ready to change its practice: we persuaded it to publish its responses to the consultation on the Constitutional Reform proposals in full rather than in summary on its web site. This is now its standard departmental practice.

Protection of a Witness: Privilege

15. At the end of 2003 we were contacted by Mrs Judy Weleminsky, a witness who claimed that she had been punished as result of having sent us a memorandum which was used in our report on CAFCASS.[5] We issued a Special Report[6] which was debated by the House on 15 January 2004.[7] On a motion moved by the Chairman of the Committee, the House referred the matter to the Committee on Standards and Privileges, which reported on 1 April 2004.[8] That Committee concluded that, on the basis of facts admitted in evidence, a contempt had been committed (even in the absence of intent), but did not consider that any further action should be taken against those responsible. It said:

The difficulties which have arisen in this case might have been avoided if parliamentary privilege had been at the fore-front of the minds of all concerned, rather than at the back.[9]

It continued:

The issuing of proper guidance on parliamentary privilege to all Government Departments and public bodies ought to mean that no similar case to this one should arise in the future. Nonetheless, we believe that all committees have a responsibility to continue to be vigilant in this matter, not only in the interests of their own particular witnesses and their own inquiries, but also to protect the undoubted constitutional rights and duties of the House and all its committees, and the rights of those who give evidence to them.[10]

It urged the Government to remedy the deficiencies as a matter of urgency, and to consult the House on the terms of any proposed new guidance.

16. On 8 July, the Permanent Secretary at the Department for Constitutional Affairs wrote to the Chairman of the Standards and Privileges Committee enclosing a draft of a new section on evidence to select committees which the Government proposes to include in the Cabinet Office publication Guidance on Codes of Practice for Board Members of Public Bodies. That Committee welcomed the proposed advice in the new version of the Guidance on Codes of Practice for Board Members of Public Bodies, which, it said: "if followed, should avoid any risk of a recurrence of events similar to those which led to our Fifth Report".[11]

17. The Government has reviewed the guidance on Departmental Evidence and Response to Select Committees (Osmotherly rules) and has ensured that the issue of parliamentary privilege is included as part of this.

Liaison with the Department

18. We would like to thank the liaison officers in the Department who have assisted us throughout the year. We have the impression that it is still the case that in many areas the Department is learning how to cooperate with a Select Committee and occasionally it seems to us that they have some difficulty in ensuring that all parts of the Department understand the need for assisting the Committee in a timely way. Our staff have maintained useful informal links with the Department when preparing inquiries such as the Family Justice inquiry, where officials met the committee staff privately.

19. We list below the core objectives and tasks for select committees, indicating how we have carried out each of these. In annexes to this report we also list the subjects covered by us, the visits which we made and a table of which Liaison Committee criteria were relevant to our inquiries in 2004.

Special Problems

Security

20. An unfortunate aspect of our inquiry into Family Justice has been the need for us to take special steps to ensure security for our witnesses as well as to protect the integrity of the evidence taking process. Regrettably, we have had to restrict entry to the room where witnesses were giving oral evidence to badge holders and people who were specifically vouched for by witnesses. All other members of the public have been able to view proceedings via a live video feed in a separate room. This has been in response to the actions of the pressure group Fathers 4 Justice, members of which have in the past year disrupted the Chamber of the House of Commons and handcuffed the Minister for Children (who is scheduled to give evidence to us during this inquiry). The activities of this organisation have resulted in a restriction on the right of interested members of the public to be present at our evidence sessions.

Confidentiality

21. A further difficulty arose in relation with this inquiry. As the law stands, parties to family cases are forbidden to pass on details of their cases to those not involved in proceedings before the court.[12] The reason for this is to protect parties to family cases, in particular children. There are significant disadvantages to a blanket ban on any disclosure. It means, for example, that it is impossible for journalists to gain access to the courts to be able to collect information about the general running of the system. We shall comment in our Report on Family Justice on confidentiality in family justice cases.

22. Although the law does not apply to Parliament in the same way as to individual citizens, for reasons of comity it is of course desirable for parliamentary committees to respect orders of the court. Therefore, we took a decision at the beginning of the inquiry not to accept evidence about specific cases. Instead, the Committee staff has prepared a statistical digest of all the matters relating to specific cases which were brought to their attention by members of the public writing in. The letters which we received relating to individual cases were not treated as evidence in a formal sense; by this means we hoped to avoid any difficulty in respect of the interplay between the law relating to confidentiality in family cases and parliamentary protection of witnesses. We are glad to acknowledge that the President of the Family Division agreed with our approach.


1   Constitutional Affairs Committee, Fourth Report of Session 2002-03, Immigration and Asylum: the Government's proposed changes to publicly funded immigration and asylum work, HC 1171-I and II Back

2   Constitutional Affairs Committee, Second Special Report of Session 2003-04, Government Response to the Fourth Report on Immigration and Asylum: the Government's proposed changes to publicly funded immigration and asylum work, HC 299

 Back

3   Constitutional Affairs Committee, First Report of Session 2004-05, Freedom of Information Act 2000 - progress towards implementation, HC 79-I and II Back

4   Constitutional Affairs Committee, Fourth Report of Session 2003-04, Civil Legal Aid: adequacy of provision, HC 391-I and II Back

5   Constitutional Affairs Committee, Third Report of Session 2002-03, Children and Family Court Advisory and Support Service (CAFCASS), HC 614-I and II, Ev 226-230 Back

6   Constitutional Affairs Committee, First Special Report of Session 2003-04, Protection of a witness-privilege, HC 210 Back

7   HC Deb, 15 January 2004, cols 975 and 976 Back

8   Committee on Standards and Privileges, Fifth Report of Session 2003-04, Privilege: Protection of a witness, HC 447 Back

9   ibid, para 58 Back

10   ibid, para 60 Back

11   Committee on Standards and Privileges, Sixth Report, Session 2003-04, Privilege: Protection of a Witness (Government Response), HC 1055, para 3 Back

12   Administration of Justice Act 1960, s. 12 and the Children Act 1989, s. 97(2) Back


 
previous page contents next page

House of Commons home page Parliament home page House of Lords home page search page enquiries index

© Parliamentary copyright 2005
Prepared 24 February 2005