Statement of Changes in Immigration Rules
(Limited Text - Ministerial Extracts only)
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The Minister of State, Home Office (Baroness Browning)
My Lords, I thank the noble Lords, Lord Avebury and Lord Hunt, for the opportunity to debate these Motions. A large number of points have been raised and I will do my best to deal with the issues to which they give rise.
The Motions before us deal with two distinct subjects: changes to the rules relating to domestic violence, which were addressed by the noble Lord, Lord Avebury: and changes to tier 4 of the points-based system, which are covered by the Motion of the noble Lord, Lord Hunt. Both noble Lords raised matters of progress on the part of the Home Office and the way in which we have made information available. I hope to deal with that point, which applies to both the noble Lords’ Motions. I will deal with the Motions in turn, starting with the Motion of the noble Lord, Lord Avebury.
Domestic violence is an important issue. The noble Lord is quite right to say that it is an area where the Government are only too well aware that we need to balance two equally important principles: first, that residence in the UK is a privilege reserved for those who can make a positive contribution to the UK and abide by its rules; and, secondly, that victims of domestic violence should be protected. We, of course, attach great importance to that.
As has been mentioned, the Home Secretary has made clear the Government’s and her own personal commitment to tackling violence against women in all its forms. Tackling domestic violence is an important part of the overall strategy and we have made clear our commitment to supporting and protecting its victims. Every year approximately 1,200 people, who had come to this country to marry, apply to the UK Border Agency for indefinite leave to remain following incidents of domestic violence, so it is not such a small problem after all. The UK Border Agency gives priority to these domestic violence cases, which are dealt with proactively by specialist case workers. Improvements in the process have ensured that decisions are made quickly and fairly. Currently, more than 62 per cent of domestic violence applications are decided within 20 days. In 2010, leave was granted in 67 per cent of cases.
As has been mentioned by the noble Baroness, Lady Hussein-Ece, some applicants face a particular problem because they are destitute and have no recourse to public funds. When I was first presented with this brief, I too had a lot of questions for officials, particularly around what constituted a minor crime. I share her concern that we have to make sure that we get this right. She gave examples of offences such as shoplifting and the non-payment of TV licences. The Government have recognised the risk that women in this position might feel trapped in an abusive relationship. Because of this we have continued to fund the Sojourner Project to provide refuge places for these vulnerable victims. In just over one year of operation, the project has provided vital support to 725 women and more than 420 children. However, Sojourner is not a long-term, sustainable solution, so we have announced that after April 2012 women on spousal visas in need of refuge places will be able to access welfare benefits while their claim for indefinite leave to remain in the UK is considered. This is a major step—it has been welcomed—in ensuring that this vulnerable group remains protected and safe from abuse. Therefore, I hope that I can reassure the House that the Government’s commitment to safeguarding victims of domestic violence, whatever the changes being made in legislation, is a high priority.
I turn now to the changes the Government have recently made to the settlement rules. Having looked at them as a new Minister and asked a lot of questions, I do not believe that these changes are incompatible with the commitment that we have given to protecting women and girls in abusive relationships. The Home Secretary’s Statement in November 2010 made it clear that there must be an end to the link between temporary and permanent migration. We must be clear that settlement is not automatic—rather, as I have said, it is a privilege to be awarded only to those who abide by the laws of the country. The UK Border Agency has always taken into account the character and conduct of applicants for settlement and other categories of leave. The rules have always provided that leave will “normally be refused” if it is undesirable to permit the individual to remain because of their character, conduct or associations, so in that respect the changes serve to give more certainty to applicants. I take on board what the noble Baroness said about women’s reluctance to come forward. It is a very difficult area, but I hope that this measure will provide more clarity.
The new settlement rules mean that the UK Border Agency will be taking a more objective view about what type of offending should lead to a refusal. That should help where there are areas of uncertainty. They provide a more direct response to the sentences imposed by the criminal justice system. Set against this are the difficult and vulnerable circumstances of women and girls in abusive relationships. We need to get that balance absolutely right and to support them against the equally clear requirement for applicants for settlement to be free of convictions.
In cases where we have a moral duty to protect a victim of domestic violence, I can assure your Lordships that there would be no question of requiring them to leave the UK or to remain in an abusive relationship because of a minor conviction. For example, I would not expect the non-payment of a television licence to be regarded as a major matter of criminalisation. If such a case had arisen previously, the applicant’s behaviour would have been considered under the character test, and there would have been no certainty that settlement would have been granted under the previous rules. As now, the agency would have considered whether to exercise discretion outside the rules. That provision is not being removed.
As to the arguments that the introduction of this new rule introduces or increases the likelihood that a victim of domestic violence would not come forward, I believe that the rules are now much clearer. I hope that the noble Baroness may wish to discuss this matter with me further, and perhaps we may take a closer look at the clarity that the changes should bring. For the reasons I have outlined, I am not persuaded that there is a high risk, or one that we cannot take action to mitigate. I do not doubt that reluctance to come forward exists for many reasons—for example, a mistrust of authorities or the control being exerted by an abusive partner, as the noble Baroness mentioned, but we should not respond to that risk by condoning criminality by domestic violence applicants. It is a question of the balance that I mentioned at the beginning of my speech.
That underlines why the work of corporate partners such as Eaves, which runs the Sojourner Project, and others such as the Southall Black Sisters and Rights of Women is so important. I have seen correspondence and I know that their views are being listened to. We welcome and support the invaluable assistance to victims of domestic violence offered by such groups, and will continue to work with them, in particular to ensure that everyone involved is clear that the UK Border Agency will give the most careful and sympathetic consideration to all the facts in any application affected by the rule change. The individual and the circumstances surrounding them will still be important.
My noble friend Lord Avebury asked for a written response to paragraph 27 of the Merits Committee report. I am very happy to do that and I will of course write to him.
I turn now to the Motion of Regret in the name of the noble Lord, Lord Hunt. The issue at hand is whether the Government should have published a more comprehensive analysis of the outcome of the student consultation. The noble Lord referred in particular to the 29th Report of the Merits Committee, which states:
“The Statement has been laid without an Impact Assessment—the Explanatory Memorandum … says that one has been prepared but is awaiting final clearance by the Regulatory Policy Committee. There are also significant gaps in the analysis of the consultation responses”.
Your Lordships will recall—and it has already been mentioned—that there was a debate on similar issues in this House on 3 May in the context of the debate on the consultation on limiting economic migration. The statement of changes relating to the student consultation predates that debate and it is therefore unsurprising that the Merits Committee’s reports on the two consultations raised similar issues. However, I should reiterate what my predecessor said during that debate. We are quite clear that it is right and proper to provide the Merits Committee with the information that is necessary for it to do its job. I give my assurance to the House that in future that will be the case.
The issue having been raised, however, it would be remiss of me not to put this again in the context of previous practice in this area. The noble Lord, Lord Hunt, drew the attention of the House to the fact that the Home Office has form in this matter. I gently remind him that that form predates the current Government. While it is generally accepted as good practice, there is no legal obligation on the UK Border Agency to consult on changes to the Immigration Rules, because that does not involve primary legislation.
In March 2010, the previous Government made significant changes to tier 4, the student route, without a formal public consultation. Despite taking the views of key partners, they did not publish any formal explanation of findings. Similarly, in March 2006, following consultation, the previous Government published their policy for a points-based system, but did not publish the 517 consultation responses they had received.
I am satisfied that this Government have gone to great lengths to seek the views of the public and the sector, and to take account of these views in developing our final policy. On 23 November, the Home Secretary informed Parliament that she intended to hold a public consultation on reforming the student visa system. As has already been pointed out, this process began on 7 December 2010, when the Home Secretary announced our proposals and the consultation paper was published. The consultation ran until 31 January 2011, shorter than the standard 12 weeks, in order to announce decisions at a time that would allow the sector and students to plan for the following academic year. Our consultation received more than 30,000 responses—10 times as many as the consultation on economic routes—and officials spoke to representatives of no fewer than 200 institutions during the consultation period. On 22 March, the Home Secretary made a full Statement in the other place setting out the detail of the Government’s decisions and the public reaction and data that had informed those decisions. On 31 April, we published a detailed statement of intent describing the full policy package, and laid changes to the Immigration Rules to implement the first changes resulting from the consultation.
However, the brief window between the closure of the consultation and the announcement of policy meant that at the time that the statement of changes was issued, further work was necessary to ensure that the impact assessment was of high quality and accurate. Work continues and I can confirm that the impact assessment will be published when the next changes are made to the Immigration Rules in June—next month. The Minister for Immigration has confirmed that the impact of these changes will be a reduction in the number of main applicant visas in the order of 70,000, along with a reduction of about 20,000 in the number of dependants. It is true that, like the previous Government, we have not simply published every consultation response. We published a summary of the 30,000 responses to all the questions asked and answered in the consultation. We also indicated the level of support in relation to every response. We felt that this was helpful information for Parliament and interested parties to have.
The Government code of practice on consultation states:
“Following a consultation exercise, the Government should provide a summary of who responded … and a summary of the views expressed”.
I hope noble Lords would agree that that is what has happened. Consideration should be given to publishing the individual responses received but, in this instance, the volume of responses made that impractical. The level of response demonstrates a high level of public engagement with the policy development process, and the changes we have made to our final policy show that we have genuinely listened to and taken account of the views expressed.
We have received positive feedback from the university sector. Perhaps I may now pick up on the point made by the noble Lord, Lord Hunt, about the economic impact. Universities UK said the reforms,
“will allow British universities to remain at the forefront of international student recruitment”.
It is also the case that we will close tier-1 post-study work after 2012, but the brightest and best graduates will still be able to move into skilled sponsored employment through tier 2. The Government recognise the important contribution that international students make to the UK’s economy and to making our education system one of the best in the world. The Government’s aim is not to stop genuine students coming here, with all the implications that that would have for the wider economy, but to eliminate abuse and to focus on the high-quality and high-value sectors.
I am most grateful to all noble Lords who have spoken in this important debate. I gently invite the noble Lords, Lord Hunt and Lord Avebury, who have tabled these Motions of Regret, to consider not pressing them.
Lord Avebury
My Lords, we are most grateful to the noble Baroness for her careful reply and for answering some of the questions put to her by the noble Lord, Lord Hunt, and me. I am also grateful to the noble Lord, Lord Hunt, for saying that domestic violence is a matter of principle, not of numbers. That is the way that we have always looked at it. It does not matter whether there is only one case, or even none. That still means not that women in abusive relationships were not deterred by the previous set of rules but that they will be more deterred by a mandatory penalty imposed as a result of any convictions.
I am grateful to the noble Baroness for saying that she will give us a written answer to the eight questions posed by the Merits Committee, two of which were dealt with in more detail by the noble Lord, Lord Hunt. He was asking, in particular, about the economic impact of the changes, as did the Merits Committee in the third of its questions. The noble Baroness told us that there will be 70,000 fewer applications as a result of the changes, but she did not then go on to say what the impact of that will be on the economy of the country. Obviously, if there are 70,000 fewer applicants, that means less money coming into universities at a time when they are facing serious cuts to the money that they receive.
Baroness Browning
I am happy to confirm that the brightest and best students, who have the greatest contribution to make to the UK and our economy, will continue to be welcomed under the student route, but the scheme is looking at the brightest and best, as opposed to the number hitherto.