Crime and Policing Bill

Committee (13th Day)

Amendment 435

435: After Clause 166, insert the following new Clause— “Police covenant: mandatory reporting on suicide and attempted suicide(1) The Secretary of State must ensure the collection and publication of data on suicide and attempted suicide among police officers and police staff for the purposes of supporting mental health and wellbeing under the police covenant (see section 1 of the Police, Crime, Sentencing and Courts Act 2022).(2) Each police force in England and Wales must collect and submit annually to the Secretary of State—(a) the number of confirmed suicides by serving police officers and police staff;(b) the number of attempted suicides by serving police officers and police staff;(c) contextual information, where reasonably available, including duty status, length of service, role, rank, known occupational stressors, and access to mental health support. (3) The Secretary of State must, within 12 months of the day on which this Act is passed, and annually thereafter, lay a report before Parliament (to be known as the “Police Covenant Mental Health Report”) which must include, but is not limited to—(a) national and force-level data trends,(b) analysis of occupational contributory factors,(c) assessment of the adequacy, usage and evidence-based outcomes of mental health and suicide prevention provisions under the police covenant,(d) recommendations to address identified risks, and(e) a statement from the Chief Medical Officer for England.(4) The report under subsection (3) must—(a) be published and disseminated to all police personnel;(b) include commentary from the College of Policing on compliance, data quality and best practice at force level;(c) include contributions from staff representative bodies and trade unions.(5) Anonymised data, disaggregated by force area, must be published, subject to data protection and safeguarding.(6) Each Chief Constable must, at the end of every calendar year, provide a statement to the Secretary of State certifying that the requirements under this section have been met by their police force.(7) Where a Chief Constable fails to provide a certification under subsection (6) without reasonable excuse, the Secretary of State must notify HM Inspectorate of Constabulary and Fire & Rescue Services.(8) The Inspectorate must have regard to a notification under subsection (7) in the course of its inspection of that police force under the police effectiveness, efficiency and legitimacy (PEEL) programme.(9) The Secretary of State must establish an independent advisory board, to be known as the “Police Suicide Prevention and Mental Health Advisory Board”.(10) The Board must consist of persons with expertise in clinical care, occupational health, staff representation and academic research.(11) The functions of the Board are to—(a) advise the Secretary of State on guidance relating to suicide prevention and mental health in the police workforce,(b) set standards for the collection and reporting of relevant data, and(c) review and make recommendations on force-level responses to risks identified through data and inspections.(12) The Secretary of State may by regulations make provision about the operation of the Police Suicide Prevention and Mental Health Advisory Board, including provision about—(a) the Board’s procedures,(b) its terms of reference, and(c) its reporting duties.(13) The Secretary of State may by regulations make provision about—(a) data collection standards,(b) statutory guidance,(c) audit mechanisms, and(d) such further oversight as may be considered necessary.(14) In this section, “police officer” and “police staff” have the same meanings as in section 1 of the Police, Crime, Sentencing and Courts Act 2022.”

My Lords, I rise to support and move the amendment in the name of the noble Lord, Lord Bailey, to which I have added my name. I also support the other two amendments in this group. The reason for the amendments is that the Police Federation of England and Wales is concerned because it believes—but is not sure—that there is an increased rate of suicide among police officers, and it has a similar concern around police staff. For those noble Lords who do not know, about two-thirds of police work is done by police officers and about a third by employees who are police staff.

The Police Federation was concerned because it intuitively thought that the numbers were rising, so it sent out FoI requests to each of the 43 forces—in fact, there are also three non-Home Office forces. Unfortunately, it got only 34 replies, which has not helped it in determining whether there is a real problem. It could be worried for no cause, but at the moment it is struggling to establish the facts. The difficulty is that it cannot get hold of the data. I am really concerned about this, because it seems to me that it should not be that difficult.

I suspect that, even if the numbers of suicides are increasing, there are probably not going to be hundreds, even among a workforce of a quarter of a million. It is probably a relatively small number—probably tens rather than hundreds. Even for the biggest organisations, you would think that they would be able to find this data. For the smallest forces, surely they can remember the individuals. Some of the smaller forces we heard about in the police reforms announced yesterday have about 1,000 people, so there are not going to be so many that small forces could not remember whom this shocking thing had happened to. Police officers and police staff are generally relatively young people. They do not tend to die when they are in service, and when they die through suicide, it is a terrible shock for everybody involved.

There would be complications in gathering the data. As the amendment of the noble Lord, Lord Bailey, proposes, it would be helpful to get the data not only about those who have committed suicide but also about those who have attempted it. Establishing whether a death is a suicide or not relies on a coroner; that is the only absolute way in which we can say that there has definitely been a suicide. Sometimes, to be fair, coroners are sympathetic. They realise that this can feel to the family like a judgment, and often they will find any way that they can, in law, to find an alternative, so getting hold of the data can be difficult.

My Lords, I have put my name to Amendment 435 and, of course, I support Amendment 438A from the noble Lord, Lord Hogan-Howe, in this group. I remind the Committee that I served as the elected Police and Crime Commissioner for Leicestershire and Rutland for five years between 2016 and 2021. I welcome this initiative by the Police Federation of England and Wales. I am proud to say that its present chair, Tiff Lynch, is a Leicestershire police officer, whom I can call a friend.

As Police and Crime Commissioner, I was responsible for the well-being—this is true of all Police and Crime Commissioners but perhaps not widely known—of only one person: the chief constable. However, as any Police and Crime Commissioner would be, I was concerned in a broader sense with the well-being of all those who worked for Leicestershire Police, whether officers or staff. During my time, one senior officer took his own life in obviously tragic circumstances and, since I left office, there has been another suicide, this time of a very recently retired senior officer.

I am afraid to say that over the last 30 years there have been four senior officer suicides in that force. I do not have any information concerning police staff, but I remember clearly, and will not easily forget, the deep and lasting distress caused to all at police headquarters and in the community beyond by the death of the officer who took his own life in my time.

I must confess to not knowing at the time that all police forces were not compelled by law to pass on information about suicide or attempted suicide. I imagine I presumed that they were compelled to do so. It is surely obvious—it certainly is to me—that there should be mandatory reporting. I cannot for the life of me understand why that has not been the position until now. That is why I support these amendments and urge the Minister, with his great knowledge of policing matters, to express the Government’s acceptance of the principle behind these amendments.

My Lords, I, too, support this amendment, following on from what both noble Lords have said. Policing is a difficult, dangerous and stressful task. I have for many years referred to police officers as the men and women who are the dustbin collectors of society. They will go where other people do not want to go. I take my information source beyond those whom the noble Lords have mentioned. My son did 32 years in the police service. He has just retired as a senior detective, running one of the most difficult parts of the Metropolitan Police, and he now has a very senior role in government. Over the last two to three years, he and his friends have reported how people are either thinking about committing suicide or have attempted suicide, and in his command over about 18 months two committed suicide.

Whether and how you deal with a suicide is a difficult question. It is sensitive information. People shy away from it, understandably, but there is no doubt that we have a suicide problem in policing. My 30 years’ experience of Northern Ireland was in taking people into the most difficult situation in policing that has ever been undertaken—more of that later, no doubt, at the public inquiry, with what has been disclosed recently. Out of 28 people, all hand-picked, who went into Northern Ireland on the so-called Stevens 1, four of them never came back to policing. Two of them were thinking of committing suicide and I referred them to the force medical officer. Those people never reached the statistics.

Like my noble friend Lord Hogan-Howe, I was an inspector of constabulary for nearly two years, inspecting many forces across the country, from the largest to the smallest. One of the most important roles of the inspectorate in that case—we have discussed this—was that we went and looked at the sickness rates of a force. If we found that the sickness rates were very high, performance and morale were low. We would dig deeper, but it was difficult to find out where suicide played a role or if it played a role at all. We have a problem here and I say to the Minister, who is always supportive, that this may well be a nudge in the right direction.

I, too, support the shortest of all the amendments. My noble friend Lord Hogan-Howe’s Amendment 438A gets to what needs to happen without a lot of description. I have always felt that brevity is the best answer to a problem, because you know what is being asked for. I want to congratulate him on putting in this amendment. Every organisation will face this question of suicide and, if there is a way of collecting the data and working out why, that is necessary. I believe that the duty of candour is not simply about the way the police treat citizens; it is also about the way the organisation treats the police service. There must be a duty of candour from the chief officer and, of course, the Home Office has a part to play. I support this wonderful short amendment, because that is what needs to happen. With a much longer amendment, I am afraid that what is simple will be lost in quite a lot of detail, which is not what we want.

My Lords, from these Benches there is strong support for Amendments 435 and 438A, which would finally shine a light on one of the most sensitive and least discussed aspects of police welfare: suicide and attempted suicide among officers and staff. This is not about apportioning blame; it is about creating conditions in which people can seek help early and leaders cannot look away. Nearly two years ago I sought this very information and was assured that work was happening to collate it. Yet no figures have emerged, leaving families, colleagues and policymakers in the dark, still awaiting clarity and transparency. These amendments would ensure that bereaved families do not feel that their loss has been silently absorbed and they would confront the lingering stigma around mental ill health in policing.

Policing demands a particular duty of care that transcends the ordinary employer-employee relationship, as the state requires officers to face repeated trauma that is unparalleled in any other walk of life. We are now operating in what many describe as a crisis policing model, where officers spend most of their time dealing with the darkest parts of human experience with far fewer opportunities to balance that with visible neighbourhood-based work. In the past, time spent on community policing would lift them out of the dark place. Today, that release valve is much weaker. Much of the informal support that once existed has disappeared. Officers used to have shared spaces where they could decompress together at the end of a shift, but those communal areas have largely gone. From staff sifting through distressing online material every day to front-line officers facing the increasing likelihood of physical assault, the psychological strain is relentless. This feeds a siege mentality in a service that still struggles to recognise emotion and is not naturally open.

Policing remains an environment where taking paternity leave can invite mockery and where the burden can fall especially heavily on women and minority officers amid unreported discrimination. In too many forces, officers still fear that admitting vulnerability will derail their career progression. If Parliament seeks people to shoulder that burden on our behalf, it must insist on collecting basic information. Tracking suicides and attempted suicides would pinpoint hotspots and high-risk groups, enabling proactive measures such as resilience training, peer support and routine psychological screening. I urge the Minister to take these amendments back to the Home Office and consider bringing forward concrete proposals on Report.

My Lords, I pay tribute to my noble friend Lord Bailey of Paddington and the noble Lord, Lord Hogan-Howe, for bringing this matter to the attention of the Committee. The noble Lords, Lord Hogan-Howe and Lord Stevens of Kirkwhelpington, and I know all too well the stresses and strains of policing. It is vital that more is done to support our officers. I approach these amendments from the fact that it is impossible to address what we do not measure and, at this moment, policing has almost no reliable national mechanism for measuring accurately the total number of police suicides.

Data from the Police Federation of England and Wales shows that more than 100 police officers and staff have died by suicide between 2022 and 2025, with at least 70 officer deaths and over 200 attempted suicides in that period. Those figures are likely undercounts because there is no statutory requirement for forces to record such events. The federation has also revealed troubling trends in how these incidents are linked with organisational stresses—notably, that 47 of 70 suicides and 173 of 236 attempted suicides that it has identified between 2022 and 2025 involved officers under investigation for misconduct or criminal allegations. That is not simply a statistic; it is a human tragedy that echoes through families, colleagues and communities.

As has been said, police forces are not required to record suicide or attempted suicide, meaning that the true scale of the problem is hidden from view and national suicide statistics do not treat policing as a risk occupation, as they should. Without a statutory duty to record and report, we are asking police leaders to act in good faith alone, with widely inconsistent results. Two of the largest police forces in England and Wales reportedly could not provide their own figures when the federation asked. The amendments would end that inconsistency by placing responsibility for data collection and publication on a statutory footing.

My Lords, I am grateful to the noble Lord, Lord Hogan-Howe, for highlighting the amendments that he has put before the Committee today and to the noble Lord, Lord Bailey of Paddington, although he is not in his place, who tabled two of the amendments.

The importance of collecting accurate and consistent data for police officer and staff suicide is certainly relevant. I note particularly that the noble Lords, Lord Stevens and Lord Hogan-Howe, and my noble friend Lord Bach have a significant senior level of experience in these areas. I am grateful also for the comments of the noble and right reverend Lord, Lord Sentamu, and I recognise and note the strong support from the noble Baroness, Lady Doocey, and the noble Lord, Lord Davies of Gower, from the Opposition Benches for the proposals in the amendments.

Every life lost to suicide is a tremendous tragedy and, when that person is part of our police workforce, that loss is even deeper because those officers, as has been said, walk towards danger and see things that everyday citizens do not see. It is only fair that we support them with the same care and commitment that they show to us.

It may help the Committee to know that last year I met the Police Federation chair, Tiff Lynch, when she raised these matters with me. I have to say that this is an issue. We must do our utmost to protect and support police officers and this Government agree that understanding the scale and nature of the problem is essential. As the noble Lord, Lord Hogan-Howe, said, it is important that we understand whether any levels of suicide are linked specifically to a policing role or linked to factors outside of policing that policing may or may not exacerbate, as well as what measures can be taken, as in any walk of life, to help to support and encourage individuals who have mental health challenges or experiences that drive them to suicide. That is why we as a Government are actively considering the best options for achieving that, both in legislation and via non-legislative routes, so that we can deliver meaningful and sustainable improvements without creating unnecessary burdens.

I was struck that the survey undertaken by the Police Federation did not receive a significant response. It was a large response but not a significant one, given the nature of the issue that was raised. The Government are currently working, through the National Police Wellbeing Service and the National Police Chief Medical Officer, to strengthen existing data collection and to improve the consistency and timeliness of information across forces, and we are now requesting more data than ever before.

Is that enough? I can inform the mover of the amendment today that the Policing Minister, Sarah Jones MP, is considering further options for mandating that data collection, including potentially strengthening the police covenant and—this is an important point for all noble Lords who have spoken in the debate—the potential for legislation, if that proves necessary.

Noble Lords will understand that this is a matter for discussion. We need to consult stakeholders: the National Police Chiefs’ Council needs to be engaged, as does the Police Federation. Last week my honourable friend the Minister, Sarah Jones MP, convened a roundtable of stakeholders to examine the best routes forward to achieve the objectives that the amendments have highlighted today. That roundtable will take place shortly and it will discuss how we improve data collection and whether we need legislation to force that data collection. I hope that that is a considered approach to this vital issue that has been raised in Committee today. Alongside that, there are existing mechanisms, including the police covenant clinical governance group and the National Police Chiefs’ Council suicide prevention steering group, which provide robust oversight, expert guidance and continuous improvement in suicide prevention and mental health support in the police service.