Baroness Verma
My Lords, I start by thanking the noble Baroness, Lady Gould of Potternewton, for initiating this important debate and all noble Lords for their valuable contributions. I welcome the fact that we have had a further opportunity to debate this important issue. The noble Baroness, Lady Gould, is a great champion of women and women’s issues, and her never-ending energy in ensuring that their voices are heard is to be admired. I have enormous personal respect for the noble Baroness, whom I regard not just as a noble Baroness but as my friend.
It is unequivocally in the national interest to ensure that women and girls are able to achieve their potential and lead fulfilled lives. We will raise the position of women by promoting equal pay, ending discrimination in the workplace and tackling violence against women and girls both in this country and overseas. This is a key priority for our Government. Violence against women and girls cannot be accepted under any circumstances or for any reasons, yet we continue to see that, in the United Kingdom at least, one in four women will be the victim of domestic abuse and that every year, as has been said, more than 300,000 women are sexually assaulted and 60,000 raped. Internationally, findings in a number of developing countries suggest that violence against women and girls is significant and often endemic. Between 40 and 60 per cent of the women surveyed in Bangladesh, Ethiopia, Peru, Samoa, Thailand and Tanzania said that they had been abused by their immediate partners.
Our ambition is to end violence. We need to make a real difference to the lives of women and girls who have suffered or are suffering violence. We recognise that it is not a short-term task, and achieving this goal will prove difficult, with barriers and obstacles at every juncture, as we work towards a cultural shift.
The causes and consequences of violence against women and girls are, of course, extremely complex. For too long, work in this area has focused on the criminal justice response alone. This Government will continue to ensure that the police and courts have the tools that they need to bring offenders to justice and, more importantly, to ensure that victims have the support they need to rebuild their lives. However, this issue cannot be looked at in separate silos, but as a whole.
We are working across government to prevent and tackle violence against women and girls in the long term, and on 25 November last year we published our approach to how we will achieve this. For the first time, this approach includes our international efforts at bilateral and multilateral levels. To ensure that tackling violence against women and girls remains high on the international agenda, we have appointed Lynne Featherstone as the ministerial champion for tackling violence against women and girls overseas. The Home Office, the Foreign and Commonwealth Office and the Department for International Development are currently finalising plans to support the Minister in this important role.
We will also continue to promote the empowerment of women worldwide by supporting the newly formed agency UN Women, the implementation of the Convention on the Elimination of All Forms of Discrimination Against Women, and by placing gender equality and empowerment of women at the centre of international development—essential to the achievement of all millennium development goals.
It is extremely important that continued support for victims is available, particularly in an economic climate that requires us to spend less and yet work more effectively and efficiently. That is why we are determined to move away from the piecemeal funding arrangements of the previous Government. It is why we have allocated £28 million of stable Home Office funding for specialist services over the next four years. That will include the provision of funding and advice to local areas to support independent domestic violence adviser posts, independent sexual violence adviser posts and the role of the multi agency risk assessment conference co-ordinators.
The allocation includes direct support to voluntary and community sector organisations and I can confirm that the Home Office is currently inviting bids for the next financial year for funding totalling £5 million from services that support victims of domestic abuse and sexual assault. We will also continue to provide direct funding to the national helplines that provide support and advice to all victims of domestic violence, including men.
We are providing stable funding to those specialist services that have the greatest reach and we are working to ensure that our communications take the information about these services to all communities. Alongside that, we are developing a sustainable funding model to deliver new rape crisis centres across the country and we will provide existing centres with stable and long-term funding.
Women and girls in every area are being subject to abuse, and local authorities have an important role in ensuring that they are able to overcome the abuse. Despite the difficult economic climate, centrally we have sent out a clear message that violence against women and girls is unacceptable and it is a key priority for us to ensure that we have all our powers working to eliminate it. We will support local areas to deliver the services that their communities need by removing unnecessary targets, ensuring greater local accountability and raising awareness about abuse with front-line professionals.
The specific issue of funding for refuges is one that has been raised. I must be clear that the allocation of funds for domestic violence provision is a matter for local authorities to determine, based on local needs and priorities. However, throughout the spending review, we have been guided by a commitment to fairness, protecting the most vulnerable people in our society and, as far as possible, protecting front-line services.
We have secured investment of £6.5 billion for the Supporting People programme over the next four years. Local areas will continue to take decisions informed by local needs in commissioning housing-related support services for victims of domestic violence. The Government are also committed to finding a long-term solution to support women who come to this country on a spousal visa, find themselves a victim of domestic violence and have no recourse to public funds. We will continue to support these women while a more permanent solution is found. We are at the beginning of the work we want to do, at the beginning of a funding cycle in a difficult economic climate. While we will always keep our actions under review, this is our vision and approach for the coming years.
Law and the application and enforcement of the law are clearly part of what we do. I should like to highlight a number of key points in that area. From June 2011, we will pilot domestic violence protection orders for 12 months in West Mercia, Wiltshire and Manchester. The DVPOs will potentially provide an additional tool for the police in dealing with perpetrators of domestic violence to ensure that the victim has sufficient opportunity to consider her long-term options. We deferred the decision on the pilots so that we could understand their potential impact better and be sure that they would work before committing public funds. We will conduct a full evaluation before we make a decision on national implementation.
Section 9 of the Domestic Violence, Crime and Victims Act 2004 will bring into law a requirement on local areas to hold a multi-agency review following a case of adult domestic homicide. Domestic homicide reviews are an effective learning and prevention tool for local areas and we are working through the implications of this with our partners before implementing the power. We have committed to introducing this power in spring 2011.
Since the Forced Marriage (Civil Protection) Act 2007 came into force, we have issued 247 protection orders to protect vulnerable women and men. This is significant, but we know that much more needs to be done. We are committed to raising awareness of forced marriage not only for the individuals concerned but also so that their families and their communities understand that we will take action to prevent young people being forced into marriage against their will. We will also continue to support front-line professionals from schools, children and adult social care, housing, health and police by providing step-by-step advice.
Another issue of great concern is the lack of prosecutions for female genital mutilation. We have no reason to believe that the Crown Prosecution Service would not be prepared to prosecute if cases were referred to it and there was sufficient evidence to provide a realistic prospect of conviction. Anecdotally, the most likely barrier to prosecution is pressure from the family or wider community to stay silent. However, the Female Genital Mutilation Act 2003 provides a clear message that FGM is an unacceptable practice and illegal in England and Wales. The Act has also been a catalyst for outreach work and has helped to raise awareness of FGM. We will shortly launch new guidelines which will support front-line staff to tackle and prevent the practice, provide support to women and girls and encourage the referral of all suspected cases to the police for investigation.
Non-molestation and occupation orders can be made under Part IV of the Family Law Act 1996. Such orders are aimed at protecting women from violence or threatened violence, intimidation or harassment. An occupation order can specifically exclude a perpetrator from the family home or surrounding area. Such orders can provide vital protection for victims and their children. It is therefore important to note that the year-on-year rise in applications for non-molestation orders between 2007 and 2009 would appear to contradict suggestions that applicants may be deterred by the possible criminalisation of the respondent since Section 1 of the Domestic Violence, Crime and Victims Act was implemented in July 2007.
The Sexual Offences Act 2003 was a complete overhaul of the legal framework for dealing with sexual offences and introduced a statutory definition of consent. We know that sexual violence and rape are underreported crimes and therefore neither prosecuted nor convicted as we would like them to be. There has been some progress. For example, during the four-year period from 2006-07 to 2009-10, the number of rape prosecutions by the CPS rose by 17 per cent from 3,264 to 3,819. But of course we need to do more, and the Government are determined to do more. Our response to the independent review of rape complaints by the noble Baroness, Lady Stern, will help set out our direction for this.
In October last year we implemented the Equality Act 2010. As part of the Act we are introducing a new public sector equality duty which requires public bodies to consider how their policies meet the needs of all those who use their services. Public bodies will be required to publish data on the impact of their work. This will include relevant data on how they are tackling violence against women and girls and will mean that the public are able to hold them to account.
I will now try to answer some of the questions put by noble Lords, and if I cannot do so I pledge to write to them. I understand fully the concerns of the noble Baroness, Lady Gould, about prostitution and trafficking being placed in separate strategies but I assure her that it in no way diminishes our determination to address those two particular issues. She is of course absolutely right: it will take a massive cultural shift, not just legislation, for us to be able to ensure that violence against women is on the decrease. We cannot change society and our community actions unless all the partners and actors play their roles within that shift, which we all want to happen.
The noble Baroness, as well as the noble Baroness, Lady Howe of Idlicote, asked about violence against women and girls being addressed in the teaching in schools. The Government will shortly be announcing a review into personal, social, health and economic education and sexual relationship education. The Department for Education’s advisory group will feed into the review part of the coalition Government’s commitment to the teaching of sexual consent and healthy relationships in the curriculum—an issue which I think the noble Baroness, Lady Walmsley, raised. Other noble Lords raised the issue of violence against women being addressed in the NHS operating framework. The Department of Health is currently considering the inclusion of violence against women and girls in that framework. Further details of the Government’s approach in this area will be included in the violence against women and girls action plan in the spring.
I am grateful to the noble Baronesses, Lady Massey and Lady Gould, for raising the important issues surrounding trafficking. The Government are committed to working with others, including our European partners, to prevent human trafficking. Our work on trafficking will be taken forward in a separate strategy, as I have already said. In June 2010 the Government decided not to opt into the proposed EU directive on human trafficking, but also to review that position after implementation of the directive. Negotiations on the directive’s text were agreed on 13 December, and the directive is scheduled for adoption early next year. If we later conclude that the directive would help us fight human trafficking, we will opt in. I reassure noble Lords that the UK has a very strong record in fighting trafficking and already complies in legislation and practice with most of what is required by the draft directive. The UK will continue to play an active role in helping to improve EU-wide efforts in combating human trafficking.
I turn to the concerns of the noble Baroness, Lady Walmsley, about the role of better communication in preventing violence against women and girls happening in the first place. This is at the heart of our Government’s approach and we are taking steps to ensure that, through the curriculum and our cross-government communication strategy, all avenues are explored in ensuring that we do not fall short. We want to ensure that communications are available to all those who are at the forefront of identifying abuse. We are carefully considering the findings from the independent Munro review of child protection to focus on better supporting child-focused front-line practices. Further detail outlining how this will take place will be published in March. This Government have made a clear commitment to early intervention in the coalition’s programme for government, which said that we would investigate a new approach to helping families with multiple problems where violence and abuse can be a risk factor.
The noble Baroness, Lady Howe of Idlicote, also talked about the sexualisation of children. It is essential that we take steps to challenge these messages, demonstrate that they are not acceptable and work to put positive models and messages in place. That is why the Government have asked Reg Bailey, chief executive of the Mothers’ Union, to conduct an independent review into this issue. That will report in May 2011.
I am now going to try to read my scribbled notes; I apologise. The noble Baroness is right that this is not just going to be a United Kingdom problem—we also have to look at its implications internationally. We take that seriously, and, with our ministerial representative Lynne Featherstone, we hope that at UN Women the issues that we feel strongly about are focused and directed there.
My noble friend Lord Lester talked about forced marriages. It is a great privilege to have supported the noble Lord and the then Government when that Bill came to this House. I had the privilege of leading from the Conservative Benches. I come from a community where, unfortunately, this practice continues to blight and scar the lives of too many young boys and girls. It is a long and difficult journey to be able to ensure that we are making enough awareness available to those communities to make them see how much of a long-term impact such forced marriages have on young people. Wider than that, it frightens young people away from the prospect of marriage; they feel that they cannot approach their own immediate families to raise their own personal fears. Like the noble Lord, I intend to take every opportunity to endeavour to ensure that this issue is raised, not just in this country. Like the noble Lord, I take it as a personal mission to raise the issue in every country that I visit.
The Government have committed to providing a full response to the review of the noble Baroness, Lady Stern, into how rape complaints are handled by public authorities in England and Wales. That will be published in the spring alongside the Government’s violence against women action plan. The Government’s response will highlight the importance of sexual assault referral centres and the role of rape crisis centres. The coalition Government’s commitment to supporting those services is outlined in the strategic narrative on violence against women and girls that was published in the autumn. We have already awarded £2.2 million in 2010-11 to improving SARC provision. The Government will shortly announce further funding details for rape crisis centres and SARCs over the spending review period.
To touch on the “ugly mugs”, the Government are currently funding a feasibility study into the development of a national ugly mug scheme. Such a scheme would help to co-ordinate the local schemes currently run by specialist voluntary sector projects. These allow people in prostitution to report information about incidents of violence that they have suffered or provide information about threatening or dangerous clients.
My noble friend Lady Hamwee raised the issue of the work of the Inter-Ministerial Group on Violence against Women and Girls, which is chaired by the Home Secretary. The Minister for Prisons is currently writing to the Home Secretary to clarify the position of the group and how it will take forward its work on recognising suicide as part of the abuse. I hope we will discuss this at our meeting in February.
The noble Baroness, Lady Greengross, talked about older women. I thank her for raising this serious but underreported issue. As someone whose business is in care, I understand completely the number of victims that go unreported simply because they do not know where to turn, because their immediate protectors are usually the very people who are carrying out the abuse. I will take that important message back to the department. We need to make sure that it is raised and that we are fully aware of it in our thinking and strategies. Widows are victims who often have the least voice or presence in society. They are often ostracised and abused, and their plights are often simply ignored. Again, it is something that we need to take back and think about more carefully.
I hope noble Lords will indulge me for one or two more minutes so that I can complete my responses. My noble friend Lord Thomas and the noble Baroness, Lady Finlay, talked about the training of health workers in dealing with violence against women and girls. The Department of Health is currently rolling out training to front-line health practitioners to identify the early signs of violence against women and girls. This is part of the Government’s response to the Alberti review and the work of the Department of Health’s task force on violence against women and girls. The Government are also exploring how health visitors might have a greater role in identifying the signs of domestic violence in the women they visit. Further details on the training of front-line workers to identify signs of violence in order to intervene early will be outlined in the Government’s action plan in March.
I agree very much with many of the things that the noble Baroness, Lady Prosser, said about there being substantial change, but there is still much to be done. In some communities where it is still acceptable as a norm to beat wives, sisters and daughters, that change is incredibly slow; and because those communities know the abuse will not be reported outside, the abuse will continue. There is a huge mountain to climb. There is no doubt about that.
The noble Baroness asked about our funding for UN Women. We are undergoing bilateral and multilateral reviews. Until those have concluded, which they should by the spring of this year, it is difficult to comment on funding. However, we are offering transitional support.
I have been passed a tart note telling me to say that I will write to all noble Lords whom I have not answered. I thank the noble Baroness for initiating this debate.