My Lords, there is an urgent need to introduce the duty of candour for those operating across public services such as policing, health, social care and housing. A duty of candour would place a legal requirement on organisations to approach public scrutiny—including inquiries and inquests into state-related deaths—in a candid and transparent manner. The duty would enable public servants and others delivering state services to carry out their roles diligently, while empowering them to flag dangerous practices that risk lives.
By requiring openness and transparency, a statutory duty of candour would assist in creating a culture of change in how state bodies approach inquests and inquiries. It would give confidence to those individual members of an organisation who want to fully assist proceedings, inquiries and investigations but who may experience pressure from their colleagues not to do so. A statutory duty of candour would compel co-operation with proceedings, inquiries and investigations, thereby dismantling the culture of colleague protection in, for example, the police service.
The NHS currently has a duty of candour whereby there is no liability for breaches. The need for sanctions on a duty of candour was recently evidenced by the inquiry into deaths in Essex mental health services. Before the inquiry was converted into a statutory inquiry, the then chair had said that she could not effectively do her job and that only 30% of the named staff had agreed to attend evidence sessions—a key element of the duty of candour as put forward in the amendment, which would apply to all public authorities.
A duty of candour needs to apply to all public authorities to ensure an effective end to evasive and obstructive practices following contentious deaths. State-related deaths, particularly major incidents such as the Hillsborough tragedy or the Grenfell Tower fire, commonly involve many different public agencies, from local authorities to health services. Without ensuring a duty of candour that applies to all involved in relevant investigations, institutional defensiveness and delays will continue, and the fundamental purpose of such investigations—to prevent future deaths—will continue to be undermined. The original version of the duty, put forward in the Criminal Justice Bill, applies only to police officers. Do the Government agree that it is important that this is fixed, whether in this Bill or a future criminal justice Bill?
Institutional defensiveness has been found to be a pervasive issue in inquests and public inquiries. It causes additional suffering to bereaved persons, creates undue delay to inquests and inquiries, undermines public trust and confidence in the police and undermines the fundamental purpose of inquests and inquiries—to understand what has happened and prevent recurrence. Establishing a statutory duty of candour would go some way to addressing these issues.
In her 2017 review of deaths and serious incidents in custody, Dame Elish Angiolini concluded:
“It is clear that the default position whenever there are deaths or a serious incident involving the police, tends to be one of defensiveness on the part of state bodies”.
Additionally, the chair of the statutory Anthony Grainger inquiry, His Honour Judge Teague KC, concluded that it was his
“firm view that an unduly reticent, at times secretive attitude prevailed within Greater Manchester Police’s Tactical Firearms Unit throughout the period covered by the inquiry”.
Compelling co-operation with a statutory duty of candour would enable inquests and inquiries to fulfil their function of reaching the truth to make pertinent recommendations which addressed what went wrong, and to identify learning for the future.
Failure to make full disclosure and to act with transparency can also lead to lengthy delays as the investigation or inquiry grapples with identifying and resolving issues in the dispute at a cost to public funds and public safety. A statutory duty of candour would significantly enhance the participation of bereaved people and survivors, by ensuring that a public body’s position was clear from the outset, limiting the possibility of evasiveness. I beg to move.