(12 years ago)
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Baroness Jenkin of Kennington
To ask Her Majesty’s Government what action they are taking to prevent violence against women.
Baroness Jenkin of Kennington
My Lords, I am grateful for this opportunity to open this timely debate on violence against women. As noble Lords will appreciate, it is timed to coincide with the annual International Day for the Elimination of Violence against Women on 25 November, designated by the UN General Assembly to raise awareness of the fact that women around the world are subject to rape, domestic violence and other forms of violence, the scale and true nature of which is often hidden. Each year, this creates an opportunity for individuals, groups and NGOs such as Women for Women International, UN Women, UNICEF, ActionAid and of course DfID—to name but a few—to promote 16 days of activism, joining together to speak out against and raise awareness of the need to end violence against women. Over the past few days, I have found the tweets of these various organisations extremely illuminating. I am delighted that this debate falls within the 16-day campaign period which ends on 10 December. I hope that it, too, will serve to highlight and draw attention to some of the issues both domestically and internationally which so many others around the world are also currently discussing.
I am far from an expert in this area and look forward to hearing from noble Lords across the Chamber who speak with great experience and authority. I pay tribute to the noble Baroness, Lady Rendell, who, along with my honourable friend Jane Ellison in the other place, has been a leading campaigner on the issue of female genital mutilation. I look forward to her contribution to the debate. I look forward to hearing from the noble Baroness, Lady Stern, whose review into the treatment of rape complaints by public authorities has had such a significant impact.
I am also delighted that we will hear from three noble Lords. As in so many areas of policy, we need the support of men for things to change and for progress to be made. Here, I take the opportunity to pay tribute to two men of vision who have by their actions proved this point. Andrew Mitchell, when Secretary of State at DfID, ensured that women and girls are at the heart of every DfID programme—that includes 16 programmes in this area alone. As he said on International Women’s Day earlier this year,
“Discrimination and violence destroys the potential of girls and women in developing countries and prevents them from pulling themselves out of poverty”.
Also, the announcement of our Foreign Secretary, William Hague, earlier this month on preventing sexual violence in conflict and post-conflict situations was groundbreaking. I will return to that later in my remarks.
Before preparing for this debate, I was of course aware of the basic facts and statistics with regard to domestic violence, many of which have been raised in this Chamber during Questions or in debates, and will I am sure be raised again today. But looking through the briefings which we will all have been sent, I confess to being utterly shocked by the extent of what is going on under our own eyes. A friend of mine was recently hospitalised with broken ribs. It turned out that her husband had been beating her for years and neither her friends nor her family had any idea. She is one of the fewer than one in four victims who, suffering abuse at the hands of their partner, report it to the police. That means we have to do more to help victims feel confident about reporting these crimes and overcome the feelings of guilt they have about the consequences of doing so. As a society, we are failing to remedy the tragedy of gendered violence. In the UK alone, two women every week are killed by a partner or ex-partner, and every year 60,000 women are raped. Sexual harassment in schools, communities and workplaces is routine.
However, the hour is late and the time is tight. I shall focus my comments on the global situation. I hope that my noble friend in her closing remarks will expand on recent changes domestically which are addressing many of the challenges that we will discuss today. They include the new anti-stalking legislation, the Home Office’s call to end violence against women and girls and the fact that forcing a girl to marry against her will is to become a criminal offence in England and Wales.
I am sure that all of us in this Chamber welcome the Government’s new cross-governmental definition of domestic violence, which will be implemented next March. That definition will reduce the age at which domestic violence can be recognised from 18 to 16—something that is necessary given that the British Crime Survey in 2010 found that 16 to 19 year-olds are the most likely to suffer abuse from a partner. It affects more than one in 10 girls in that age group.
Violence against women and girls is the most widespread form of abuse world wide, affecting one-third of all women in their lifetime. Addressing violence against women and girls is a central development goal in its own right and key to achieving other development outcomes for individual women and their families, communities and nations. Globally, 603 million women live in countries where domestic violence is not yet considered a crime.
To mention a few specific issues, more than 60 million girls are child brides. I recommend the report of the APPG on Population, Development and Reproductive Health, A Childhood Lost, published earlier this week, which is packed with detailed information spelling out the consequences of child marriage, as well as some utterly tragic case histories.
Yesterday’s horrifying news of the beheading of a 15 year-old in northern Afghanistan because her father thought she was too young to marry, is the latest in an alarming trend of similar violence in the area. About 100 million to 140 million girls and women have experienced FGM. More than 600,000 women and girls are trafficked across borders each year, the vast majority for sexual exploitation. In a survey in India, 50% of men and women agree that wife beating is justified if the woman disrespects her in-laws or neglects the house. When violence against women is justified and attributed to the victim, change is very unlikely to occur.
In the South Kivu Province of the Democratic Republic of the Congo, reportedly the worst place in the world to be a woman or a child, there is an epidemic of rape—according to UNFPA, an average of 40 women every day. Given how difficult it is to get news out from some of those remote places, we can only assume that these dreadful stories are merely the tip of the iceberg.
As mentioned earlier, in his speech on 14 November about the use of violence and rape in war, William Hague said that we must shatter the culture of impunity for those who use rape and sexual violence as a weapon of war and shift the balance of shame away from survivors to the perpetrators of that crime. The Foreign Secretary is right to address what is a common view in some parts of the world that it is the victims who should feel ashamed. We need a cultural change through education and media so that women are empowered and gender relations can be built that sustain respect, harmony and non-violence. Those are all issues which need to be addressed both for the victims’ sake and for development reasons
Violence against women has its roots deeply embedded in the inequality between men and women. Violence is used as a tool to maintain subordination of and control over women. Gender inequalities and discrimination are exacerbated during crisis and social breakdown, meaning that already vulnerable girls and women are increasingly less likely to be able to defend themselves, or to break the cycle.
As I mentioned, violence against females impacts negatively on economic growth—indeed, the cost to society is billions of dollars in lost opportunities from education and employment as well as more direct costs for policing, healthcare and the justice system. Violence against girls has a direct correlation to poor performance in school, lower enrolment and high dropout rates. Females are often forced into pregnancy, and abuse can have serious repercussions for their physical and psychological ability to gain employment and participate in what we would consider to be normal lives.
I end by looking back briefly to the origins of this particular day. The international recognition that women have a right to a life free from violence is recent. Historically, their struggle with violence, and with the impunity that often protects the perpetrators, has been linked with their fight to overcome discrimination. Since its founding, the United Nations has concerned itself with the advancement of women's rights, but it was not until 1993 that it specifically targeted the high rates of violence against women. One of the aims of the resolution which adopted the Declaration on the Elimination of Violence Against Women was to overturn the prevailing governmental stance that violence against women was a private, domestic matter, not requiring state intervention.
Next March, Governments, NGOs and civil society leaders will again meet at the UN in New York for the 57th session of the Commission on the Status of Women. The priority theme is the elimination and prevention of all forms of violence against women and girls. As they meet, and as we continue our deliberations today, I hope that they and we bear in mind the remarks made at that meeting nearly 20 years ago by Boutros Boutros-Ghali, when he issued a statement in preparation of the declaration. He said:
“The struggle for women’s rights, and the task of creating a new United Nations, able to promote peace and the values which nurture and sustain it, are one and the same. Today—more than ever—the cause of women is the cause of all humanity”.
Baroness Rendell of Babergh
My Lords, I thank the noble Baroness, Lady Jenkin, for introducing this debate on a subject that, sadly, is always with us. It comes at an apposite time for a new development that is taking place in the campaign against a particularly horrible type of violence against women. I speak, of course, about female genital mutilation.
Almost a decade has gone by since the passing of the Female Genital Mutilation Act 2003, which makes it an offence to take a child abroad for mutilation and carries a maximum penalty of 14 years’ imprisonment. All of us associated with the Bill that became that Act hoped confidently for prosecutions but none has been brought. Three cases have been referred to the Crown Prosecution Service but none has made it to court. The police have tried, but a major objection has been and is that the young girls—it is usually children under 12 who are cut—are unwilling to give evidence against their parents. Another is that Horn of Africa communities maintain silence, even among themselves, on FGM issues.
Now, however, the Director of Public Prosecutions, Keir Starmer, has spoken out on the criminality of this practice and published an action plan. The 10 provisions in the plan include: gathering more robust data on allegations of FGM, so that the scale of the problem can be gauged; identifying case studies from the data to examine emerging issues as to why the police officer or doctor did not proceed; investigating what has hindered investigations and prosecutions; raising with Ministers what the existing reporting duties are for medical professionals, social care professionals and teachers in referring possible FGM cases to the police; exploring how other jurisdictions prosecute this crime; examining how these have prosecuted cases of FGM; and asking what evidence is required to support charges of conspiracy to commit, or to aid and abet, the offence.
The plan proposes that the Director of Public Prosecutions should raise with Justice Ministers whether current legislation should be reviewed. Other police tactical options might operate and the question asked as to what intelligence could be collated to support evidence-gathering for a prosecution. The police and the Crown Prosecution Service should develop a protocol for the police to refer all cases of FGM to the CPS for early advice on lines of inquiry and evidential issues, so that the police can build a strong case. Discussions will take place with the Department for Education on whether guidance on Working Together to Safeguard Children requires updating for further clarity about FGM. A steering group has been established to oversee the progress on the action points ahead of the DPP’s next FGM prosecution round table in summer 2013.
I cannot stress too strongly the pleasure and hope that learning of this action plan will bring to the many who have supported campaigns against FGM and suffered continual disappointment during the past years. In the past decade, it has appeared that whatever might be happening in other EU countries—France, Italy and Sweden, among others—the UK was to remain a safe haven for those who practised with impunity the excision of young children’s genitalia. If this action plan can set in train a real advance in prosecution and therefore a warning to those contemplating FGM, it will be a step forward that should have happened 10 years ago, but now that such a decisive plan has been formulated, it must not be allowed to founder. Its progress will be watched avidly by the dozens, by now hundreds, of groups and organisations across the United Kingdom set up over the years to oppose this particular type of child abuse.
Baroness Hussein-Ece
My Lords, I, too, thank the noble Baroness, Lady Jenkin, for securing this important debate. I, too, woke up this morning to the horrifying headline news of the 14 year-old Afghan child who was beheaded by members of her family because her father had refused a marriage proposal for her. As we debate how we have a responsibility to lend our weight to end violence against women around the world, this terrible tragedy comes as a stark reminder of the urgency of this issue.
Michelle Bachelet, director of UN Women, in her message for the International Day for the Elimination of Violence against Women, called for bold action and decisive leadership to galvanise efforts to end the pandemic of violence against women and girls. Today, we know that 125 countries have laws that penalise domestic violence, which is a huge step forward from a decade ago, but that is not enough as 603 million women live in countries where domestic violence is still not a crime. Recently, a high-profile, educated woman from the Indian subcontinent told me of an incident where a senior official casually in conversation talked of how when he beat his wife, she knew what she had done wrong. This is by no means an unusual attitude and is not necessarily confined to poorer communities. I experienced threats of violence myself some years ago, when I set up the first project and centre to support Turkish and Kurdish women who experienced violence in the UK, from the very men who perpetrated that violence against women and their family behind closed doors, or who, often in the name of their so-called honour, which, as we all know, is dishonour, tried to control women by using violent methods.
Having laws in place is not enough. We need those laws to be properly implemented. We know that legislatures and enforcement authorities are usually dominated by men who often do not see this issue as a priority. We must do better to protect women and prevent this pervasive human rights violation. Governments and leaders must lead by example. Many Governments, such as the Afghan authorities, make promises, but it is time for Governments to translate international promises into concrete action. We need an increased number of women in politics, law enforcement and peacekeeping forces as well as economic opportunities for women. We also need educational campaigns, both here in the UK and elsewhere, that teach human rights and advocate mutual respect that will inspire young people so that the next generation can show leadership on ending violence against women.
Here in the UK, we are still working hard to eliminate and educate people in our society to change behaviour and attitudes, but according to the NSPCC sadly one in three teenage girls experience sexual violence from their boyfriends. We need to look at how women are being portrayed in some sections of the media, particularly in online sites.
In showing leadership and using our influence to progress this work internationally, will the Minister consider whether the UK will lend its support to the recommendations that Oxfam, among others, has put forward on human rights featuring prominently in UK diplomacy at international and country level with specific attention to gender-based violence, including sexual violence, and also on championing a place at the table for women in peace negotiations, in line with UN Security Council Resolution 1325, to help to ensure that gender-based violence is recognised as part of any peace process and that women’s rights are sustained over the long term?
As the noble Baroness, Lady Jenkin, said, the 57th session of the Commission on the Status of Women will be held next March and will be on this theme. It is important that the UK Government show leadership at this event and support the call from UN Women and its expert group for the development of an international implementation plan to end violence against women. Will the Minister say whether this will be the case?
Baroness Stern
My Lords, I thank the noble Baroness, Lady Jenkin, for initiating this important debate during the 16 days. I shall concentrate my remarks on what needs to be done to prevent rape and serious sexual assault in this country; I am talking particularly about the rape of those over the age of 13, not young children.
Great progress in dealing with rape and serious sexual assault has been made in recent years, both under the previous Government and under the coalition Government. The Government have made clear in a number of policy documents what they see as the right approach, with which I agree wholeheartedly. First, the victim must be central to the response, and help and services should be provided regardless of the possible criminal justice outcome. Secondly, good specialist law enforcement is essential. Thirdly, prevention must always be accorded time and resources.
Those three aspects are interconnected. If victims are at the centre and given the support and help they need, they are more likely to stick with the legal process and more likely to give information that might help prevention efforts. I will illustrate this with one small example. Sexual assault referral centres are key to an approach that puts the victim first. These are places that are run ideally by the NHS and commissioned jointly by the police and the NHS, where victims reporting rape go straight away for forensic testing and attention to any other immediate needs. In the London sexual assault referral centres, of which I am patron, a nurse reads all the reports of all the cases that they deal with: those reported to the police and those of people who come to be tested but do not want to report to the police. The nurse puts stickers on a map which identify the clubs and nightspots which seem to be producing a number of cases. Where there is a cluster which suggests a particular nightspot is attracting those who prey on vulnerable women, the nurse talks to the management of the club and offers training to the staff to understand what is going on on their premises and work to prevent women being harmed.
That is one small example of how prevention should be woven into the thinking of every agency that sees and deals with the victim. Of course, spreading understanding of the law about rape, particularly to young people, must also be done. The London sexual assault referral centres have produced an interactive video, aimed at young men, called “Where is your line?”, aiming to make it clear that sex without consent is rape. I also congratulate the Home Office for its online educational campaign about rape and sexual assault, targeting 13 to 18 year-olds.
Dealing with rape and sexual exploitation is not a simple matter of a victim making a report, a suspect being charged, a court case and a conviction. Success is not that easy to measure. It is a complex matter involving a strategic approach in every area, with the police ideally having a specialist rape unit working in an integrated way with health and with the involvement of the range of organisations that care for the many vulnerable groups that are especially at risk.
Success cannot be measured by any one indicator on its own. I first ask the Minister therefore, how are the Government going to try and get this complex message across to the police and crime commissioners, who will now be in charge of policy in their areas? Secondly, is the Home Office anticipating a phase two of the online educational campaign that was so successful the first time around?
The Lord Bishop of Liverpool
My Lords, in thanking the noble Baroness for this debate, I must also apologise to the House that there are no women on these Benches to contribute to this important debate today. The fact that they are excluded from the Bench of Bishops is not unrelated to how women are treated generally throughout the world. Although religion can be a liberating force, history shows that it also can be used to confine and to constrain, and to reinforce prejudice against women.
One reason why I believe that women should be bishops in the Church of England is that in the history of my faith you can trace the liberation of women. I would go as far as to say that the cursive script of the hand of God in the course of history is seen through the development of the leadership of women: namely, in the Bible; in the early church; on the mission field; in the fact that the Supreme Governor of the Church of England is a woman; in that women serve on the General Synod; and in the exercise of leadership of women in our parishes where one-third of all clergy in the Church of England are now women. Indeed, if women did not serve in leadership in our parishes, the parish network of the Church of England would collapse today if they withdrew the gifts that they bring to the church and to the world.
I believe that the time has come in this historic development to open the door of the House of Bishops to the spirit of God and to the women of God. Not to do so reinforces prejudice and discrimination on the grounds of gender, and defies the biblical understanding that women, as well as men, equally bear the image of God.
In my capacity as Bishop to Prisons, I am particularly aware of the issues surrounding women in prison and on probation. Last January, I explored some of these themes in a BBC Radio 4 series, “The Bishop and the Prisoner”. At the risk of generalisation, and without exonerating perpetrators of crime, it is clear that the context in which many women offend is coloured by them being victims of abuse and violence. In 2002, according to the Ministry of Justice, more than 50% of women in prison reported suffering domestic violence and one in three reported sexual abuse.
The diocese of Liverpool sponsors a bail hostel, Adelaide House, for women who have come out of prison or are on probation. On one visit I met a number of women and in each case her story of offending was linked with her being the victim of physical abuse. They were not trying to excuse their behaviour but simply giving an account of their actions and reactions to being the victims of violence.
I should like the Minister to respond to two points. First, what progress are the Government making on implementing the proposals brought forward through the Corston report, especially in relation to female offenders who are the victims of violence? Secondly, on the point with which I began, will the Minister for Equality be seeking a formal meeting with the Archbishop of Canterbury to explore how the Church of England might, with equity and justice, serve all the people of England?
Baroness Bottomley of Nettlestone
My Lords, I am honoured to follow the right reverend Prelate. I warmly commend his approach, and that of many of his colleagues, of taking every opportunity available, whatever the topic of debate, to reinforce the arguments for women on the Bishops’ Benches. Many of us should follow that example. If we could extend it to the Roman Catholic Church we might really be making progress. I entirely am with him on that issue.
I believe that many of these issues are deeply and profoundly cultural. We know that there was legislation to protect animals 20 years before legislation to protect children. The idea that a woman is somehow a chattel is very recent in our lives. For some years I, with my noble friend Lady Howe, was particularly involved in Brixton and Peckham, working with the Child Poverty Action Group. I remember an evening when a woman was screaming out at about one o’clock in the morning near where I lived. We went out and took her in, and had her for the night. The following morning she went home. No police came and there was no support for her. Only 20 years ago, there was the idea that culturally these issues were taboo and unacceptable, and that somehow it was the individual’s own fault.
More shockingly and more recently, we all have personal examples where we have been taken aback by the horror of the situation. A woman who worked with us for 25 years in Surrey suddenly arrived with bruises in her early 80s. Her husband suffered from pathological jealousy and, when he had his walking stick, all the way through his marriage, he would trip her up and then beat her with it—and this in a respectable Surrey village, with the shame and humiliation. That happened four years ago.
We talk about progress, as the noble Baroness, Lady Stern, did—and there has been great progress. The humiliation of being treated following rape by, I am sorry to say, some of the police and other forces, was almost as bad as the rape itself. Some of the agencies have been deeply unhelpful and humiliating, and have hurtfully said that women had brought it on themselves. I am delighted that the Home Secretary and the Minister for Equality, Maria Miller, have taken this seriously, with the 100 step action plan—and there is not only that but, as has been said, the work being done at DfID and the Foreign Office.
I can recall the British Council visiting a women’s group in Kenya, where the women were beaten and left in the back kitchen. When they could finally bear it no more they went back to their homes and the parents said, “You have brought shame on us—you must go back to your husband”. The British Council introduced legal rights and education policies to try to make progress.
People have talked about the subcontinent. India is a country where seven chief executives of banks are women but somehow there is still this massive group of women who have no rights and no dignity. I like practical projects. I know of a man called Vineet Nayar who has introduced 400 teachers in communities. They have the teacher only if they have 100% attendance by the girl children.
I know that I am encroaching on what the following speaker is going to discuss, but I have been very struck not only by what government can do and what charitable agencies can do—Oxfam, refuges, Women’s Aid—but also by what employers can do. My great good news at the moment is that there is a new charity, the Corporate Alliance Against Domestic Violence. What do we do at work about domestic violence? Who at work ever thinks that people are late or delayed or fearful about domestic violence spreading into the workplace? This is an organisation that reaches out to people in HR and business, which can do a huge amount of good. I hand over to the noble Baroness.
Baroness Scotland of Asthal
My Lords, I commend the noble Baroness, Lady Jenkin, for bringing forward this wonderful and important debate—and, indeed, the noble Baroness, Lady Bottomley, for introducing so generously a subject that I shall touch on. Noble Lords will know that I have to declare my interest as patron of the Corporate Alliance Against Domestic Violence, the Global Foundation for the Elimination of Domestic Violence, and chair of the All-Party Parliamentary Group on Domestic and Sexual Violence.
This debate is timely, because we still live in a world where one in three women will suffer from domestic violence at some stage in their lives. It is still the greatest cause of morbidity in women and girls worldwide. Some 75% of those victims suffer abuse while at work and 56% of victims do not go to work at least five times a month. It was for that reason that we created the Corporate Alliance Against Domestic Violence in 2005, when I left government, to assist businesses to do what they could to reduce the impact of domestic violence on the workforce.
This issue can be tackled, but it needs us to tackle it together. In this country, we have moved from serial dysfunction to function by coming together in partnership to make a difference. Noble Lords will know that we managed together, with all parties working with the third sector and business, to reduce domestic violence in our country by 64% and reduce the economic cost of domestic violence by more than £7 billion.
However, it is not just in this country that we can do that. We worked with Spanish Ministers in 2006. As a result of that joint work and initiative, our Spanish colleagues took the matter further and reduced domestic violence homicide in Spain in 2006-10 by 25%. This is something we can do worldwide. For that reason I created the Global Foundation for the Elimination of Domestic Violence in 2011. I was proud to hear the noble Baroness, Lady Hussein-Ece, talk about the work of UN Women, because the global foundation joined its expert panel and assisted in drafting the UN policy in December 2011. We are now working in a number of countries, not least Turkey, where we have done a full in-country assessment. We launched EDV India in February this year. We have also formed a coalition of more than 200 organisations in 85 countries—the largest coalition to combat domestic violence—along with the Global Truce 2012 campaign. In doing that, we have, together with Peace One Day, reached 280 million people, and we hope to reach 3 billion people by 2015, so there is a great deal we can do.
However, there is concern here in our country that our focus hitherto has not been as good as it could be. Wearing my various hats, I am constantly being contacted by a number of our voluntary organisations, which are very concerned about this issue. Yesterday I was contacted by the Changing Lives project, which said that many female participants with whom it deals have overcome significant barriers around domestic violence, sexual abuse and forced marriages. The Changing Lives project provides advice and counselling to ensure that victims get support from local services. It trains staff and offers an advanced certificate in systemic family therapy. It also offers a brand of systemic family intervention that combines therapeutic support with parenting skills, and does so in community languages to bridge the gap. However, with the changes in funding, the level of support available to those affected by domestic violence has gone down significantly. As a significant number of community advice services have lost their funding and are no longer available to provide legal advice to these women, and they are not entitled to legal aid, many of these women and their children are experiencing a cycle of stress, physical health problems and mental distress.
All of us in this House, together with those outside, have fought very hard to change that paradigm. Have Her Majesty’s Government assessed, or do they intend to monitor, the effect that the cuts in public funding to legal aid, the provision of Sure Start places and parenting skills programmes, such as those provided in Bengali, Urdu and Somali, is having on vulnerable and hard-to-reach families? Will the Government help us to better address these issues in future?
Baroness Brinton
My Lords, the threat of violence remains a shocking part of everyday life for too many people. Noble Lords have spoken movingly of that in this important debate. I thank the noble Baroness, Lady Jenkin of Kennington, for securing this debate.
Some noble Lords will be aware of my own experience of being stalked—thankfully, it was never actually violent. I want to focus on how the new law that came into effect last Sunday will begin to transform the lives of victims of stalkers, the vast majority of whom are women. The independent stalking inquiry chaired by Elfyn Llwyd MP, on which I was privileged to sit, heard evidence last year which shows that stalkers are frequently very bright, extremely manipulative and seek to control the lives of those whom they stalk in every way, every hour of every day. Problems have arisen in the past when the police and criminal justice system have not recognised the threat of violence, resulting in tragic consequences. For example, at the inquest of Clare Bernal, murdered by a former admirer in Harvey Nichols in 2006, the coroner said that the police could not have prevented her murder. However, this ignored the many signs which the police and others ignored. These included his threats to kill her and the fact that he had approached colleagues for advice on how to buy a gun and on the jail sentence for murder—all at a time when he had been arrested for harassment, stalking and threatening to kill, had been rearrested for breaking bail conditions, had talked of suicide and had lost his job. But no one thought to assess the risk he posed to Clare.
It did not have to be like this. The examples of Australia and the United States, which legislated some time before us, prove that comprehensive anti-stalking legislation can be highly effective. The Australian legislation, which first separated stalking from harassment and domestic violence, as we have now done, has led to a substantial decrease in stalking. Key to the legislation are police protocols to assist victims through their ordeal, including the allocation of a trained police officer as primary liaison and the training of all—yes, all—police officers to recognise stalking and its dangers.
Sadly, prosecution alone is often not enough to help a victim overcome the complex consequences of their ordeal. In America, stalking survivors have explained which measures undertaken by their local police department made the biggest difference in their cases and, ultimately, their lives. These included the speed of the officers’ response, putting safety first, the use of technology in recording evidence, and help for victims to understand the risks to themselves.
The new stalking law in England and Wales makes stalking a criminal offence in its own right and no longer just part of harassment. It gives courts the ability to sentence stalkers threatening violence to up to five years in prison. Unlike the Scottish law introduced two years ago, the legislation here goes further by stating that training and support is necessary for the entire criminal justice system. The victims of stalking also need expert help to protect themselves from the perpetrators.
I give my personal thanks to all Ministers who supported this legislation as it progressed through Parliament, and particularly to Lynne Featherstone, who made it a priority to champion the fight against violence against women in any form. It remains essential that we hear the voices of the victims and assess the risks to them. An anti-stalking law is only as effective as those who enforce it. The culture change proposed in the new law may take a while to implement, but I am sure that now we have a tool that can give women peace of mind and safety from the persistent nightmare of stalkers.
Lord McColl of Dulwich
My Lords, I, too, thank the noble Baroness, Lady Jenkin, for initiating this debate. What I am about to say may sound rather detached and clinical, because I shall draw on my experience as a surgeon. I will give your Lordships an example of this terrible problem. One evening a man started attacking his partner at home. He put her up against a wall and beat her for three hours, smashing her face with his fist, his foot and then with an instrument. Throughout the night he beat her intermittently and finally he raped her. She thought she was dying. The surgery to repair the terrible damage took five hours and cost thousands of pounds. Further operations had to be carried out over the ensuing six months. Such was the skill of the surgeon that the physical result was perfect, but the psychological damage continues. In half of victims, it remains all their life.
There are three aspects to this that need to be emphasised. First, physical violence is a sign of an abusive relationship. Such are the complexities of human make-up that the abused person—as has been said—may blame herself for her injuries. This is one of the reasons why I commend to the House charities that are working together to transform abusive relationships and address the root of the problem. Among them is Restored, an umbrella organisation working in this country and overseas to end violence against women.
This violence usually escalates. It may start as a slap, go on to a punch in the abdomen, perhaps next time to a smash in the face and eventually to death. The problem often goes undetected. On the first occasion the attacker may be forgiven by the victim, and when they go together to the casualty department the story is that she fell against a wall or a door. The woman will deny that she was attacked. After the next assault they go to a different hospital; after the third attack they visit yet another one, so the problem is not picked up. When the doctor in the casualty department suspects what is going on, there is a reluctance to report the case for many reasons, including lack of proof.
To try to solve this problem, Professor lain Hutchison of the Royal London Hospital has established the National Facial, Oral and Oculoplastic Research Centre in Leeds to collect data to help identify victims early on. His scheme is as follows: when one suspects such a victim, a note is made that this may be an example of potential domestic violence—PDV—and it is recorded at the national centre in Leeds. Two notifications will alert the authorities and three will trigger an investigation.
Another possible solution that might reduce this appalling scourge is to make facial injury caused by personal violence a notifiable disease or condition. This was suggested by a surgeon who spends most of his time operating on these victims to repair the damage. Nowadays these injuries are more violent and destructive than ever and the facial bones are so severely smashed to pieces, making reconstructive surgery a lengthy and complicated process, to say nothing of the suffering and cost. The majority of cases go unreported for a variety of reasons, including lack of understanding by the authorities, fear of reprisal and further suffering. The police are often not informed. If the condition were made a notifiable disease, this would bring to light the huge extent and severity of the problem and ultimately reduce the number of cases. Will the Minister kindly consider this suggestion?
Finally, it is essential to have an integrated multiagency response that includes medical professionals, police, judiciary, social services and others. It is vital that perpetrators are held to account for their appalling crimes. I also stress the importance of debates such as this to raise awareness, encourage disclosure and make the abuse of women, in any form, socially unacceptable.
Lord Brooke of Alverthorpe
My Lords, I, too, am grateful to the noble Baroness, Lady Jenkin of Kennington, for sponsoring this debate, and for her introductory speech, which set the tone for us.
I declare an interest as a joint patron of the Everyman Project, which is a small London-based charity that provides training for men who are violent in family relationships but who want to stop it. Last Thursday I tried to get in a question and had I done so I would have been putting this question to the Minister—today I get the opportunity to ask her just how much money is being spent on men who are prepared to undergo training to alter their behaviour.
I know very well that if you get yourself into the criminal justice system and you end up in prison or on probation, there is an opportunity for anger management training and for individuals to try to change their practices. But for those who do not get to that stage but who want to change, I suspect that the amount of money that is available to assist them is very small indeed, and this really ought to be changed.
The vast bulk of money that is spent in this area comes from the charitable and voluntary sector. Of course, at the moment, it is extraordinarily difficult to raise cash. For example, the Everyman Project does not get a penny piece from the public purse yet it provides a 13-week training course for men who want to change. Unfortunately, we have to turn away far more men than we are able to offer training to because we simply do not have the resources to accommodate them all.
If the Government are really serious about trying to help in this area, I hope—even though I have made this plea previously, unsuccessfully—that they will be prepared to look again at the possibility of going into partnership with a number of charities, where perhaps matched funding arrangements could be made, to try to ensure that we get far more men going on these training courses. Ultimately, that is going to be a far more effective way of utilising money than the cost that is accrued when people end up in the courts and go to jail, although at the end of it they have an opportunity to get training if they are prepared to embark on it. I make an open, unabashed approach to the Minister to see whether she is prepared to take this away and give some consideration to it. I ask that question against a background of rumours that more women were killed in violent incidents in domestic disputes last year than in the previous year. I hope I am wrong on that but there are stories that that is the case. Can the Minister provide some clarity on that?
I should also like to pick up on the point made by my noble and learned friend Lady Scotland about the Corporate Alliance Against Domestic Violence, and again this goes back to government departments. I understand that the NHS has signed up to this organisation and fully supports it, but I also understand that a number of government departments have declined to do so or have not indicated a willingness to join up so far. Can the Minister say whether that is the case, which departments they are and whether she will bring pressure to bear to ensure that they go along with it?
Baroness Bakewell
My Lords, I add my thanks to the noble Baroness, Lady Jenkin, for bringing forward this debate and I thank all the other speakers for such an informed session. In recent days I have read many thousands of words about the initiatives that people are taking and I am really impressed. There are initiatives from the Home Office, from Europe, from the police and from the UN. I read that 125 countries now have laws that penalise domestic violence. This is a positive demonstration of the will of civilised legislators to bring an end to what they all agree is pernicious behaviour, yet I have noticed a distinct lag between all these good intentions and what is actually happening on the ground. Changes are intended and many are coming, but they are happening too slowly and, so far, on too modest a scale. I shall give some examples.
Forced marriage is currently a civil offence in Britain. Government proposals will make it a criminal offence and that will go before Parliament in 2013. That is all well and good. In 2002—10 years ago—the Government created the Forced Marriage Unit. In 2008, forced marriage protection orders came into being and a statutory duty was placed on public bodies to protect both children and adults. However, in 2011 the Forced Marriage Unit helpline received 1,400 calls and, in 2012, some 600 by the time this excellent report that we have all had—A Childhood Lost—was compiled. Yet it is estimated that each year around 5,000 women are at risk of being forced into marriage against their will. If that is an annual estimate, then 50,000 women are being threatened. With 1,400 calls but 50,000 women at risk, it is clear that the message is not getting right through. The people who need the help are not being reached.
In the matter of honour-related violence, according to the Iranian and Kurdish Women’s Rights Organisation, more than 2,800 honour-related cases were reported in the UK in 2010, and police say that that was an increase of 47%. However, in 2011-12, only 172 cases of honour-related violence were prosecuted and, of those, only 50%—some 80—were successful. That number was down from the figure of 52% for successes in the previous year. Therefore, these modest achievements—positive gains in the face of intolerable violence—are no match for the scale of the problem.
This is indeed a global and cultural problem of huge dimensions. It is well established in many cultures that men have the right to exercise control, which often means violence, over their women. That cultural belief is often rooted in the fundamental religion that prevails in the country. I suggest that the religious leaders of the world should perhaps be invited to examine the texts on which these acts of violence are justified. The enlightened leaders of religion know that violence against women is not a moral activity. It would be good if they were to examine the texts, just as the leaders of the anti-slavery trade campaign examined the texts in the Bible that supported slavery. They examined the texts and revised the attitude of their followers.
I have two further suggestions for the Minister. Britain sends trade delegations around the world. The delegations speak up for human rights and plead the case of prisoners wrongfully detained. Could not violence against women be specifically noted in their agendas? Could not a woman be included in delegations, specifically with the idea in mind to meet up with women in other countries and bring the issue into arenas of debate at a high level, with ambassadors, consular officials, and so on, being properly briefed to meet the people who are now speaking out in often very backward countries with little support?
Secondly, the treatment of women fleeing violence who seek asylum in this country is far from satisfactory. The organisation, Women for Asylum Women, has charted many cases where women are summarily turned away by the UK Border Agency and sent back to face the abuse that they were fleeing. The Home Office must instruct the interrogating staff about the nature and scale of violence that such women are fleeing, and allow those women asylum. We are not short of suggestions in this Chamber; we want to see them activated.
Baroness Howe of Idlicote
My Lords, I join other noble Lords in thanking the noble Baroness, Lady Jenkin of Kennington, for this debate. Yes, indeed, let us have plenty more on this subject. As we know, violence against women has been with us for far longer than any of us can imagine, and probably since the world began. Indeed, in this country in the past, such violence was regarded almost as acceptable family behaviour; it was seldom discussed openly, and certainly not if it happened in a middle-class family because of the shame felt by the woman concerned. Thankfully, those issues are now slightly more of a priority for open discussion and solution.
I want to concentrate my comments on three areas in which I hope the Government have active plans to support and encourage. First, midwives and health visitors are those who have the earliest contact with mothers and their babies and they may well have reason to suspect that there is a history of violence in a particular family. Can the Minister assure the House that there will be enough trained and aware staff—albeit working with skilled volunteers, such as those from Home Start—to provide the family with the support needed in such circumstances?
Secondly, given the views of Schools Safe 4 Girls and the End Violence Against Women Coalition, and many others, that sexual bullying and harassment are routine in UK schools, will the Government encourage all schools to run compulsory parenting classes? I mean not just classes that teach children how to cope with their parents but classes that concentrate on ensuring that all girls, and indeed boys, know the essential skills and loving relationships needed to bring up their own children as responsible, well-adjusted citizens. Thirdly, as preventing bullying at school could set the tone for acceptable behaviour across all lifetime relationships, including employment, will the Government consider encouraging the successful practice employed by some schools where a slightly older child mentor is provided for each new school entrant and that mentor gets brownie points on the quality and success of that pupil’s integration?
Some progress has been made and we should acknowledge it. For example, and as we have already heard, the new law against stalking is an important first step in coping with a number of problems that the internet world has created for us. I have to say that I think that many more steps will be needed but that one is important.
I remain worried about the effect of the increasing volume and escalation of violent and explicitly sexual activities shown on all forms of media. Of course, my own Online Safety Bill is relevant for child protection and I hope that, ultimately, the Government will support it. However, my unease grows that there is a growing appetite for the explicit sexual violence that is being created, with its obvious implications for increased violence against women.
Baroness Crawley
My Lords, I say, “Hear, hear” to the right reverend Prelate the Bishop of Liverpool on his commitment to women bishops—and that is from a collapsed Catholic. I also thank the noble Baroness, Lady Jenkin of Kennington, for raising this vital area of concern to all of us.
I welcome the work that the Government have achieved so far in combating violence against women and girls. Their plan of 88 actions has been set out clearly and their work on encouraging prosecutions and on stalking, in which my noble friend Lady Royall played so vital a role, is to be rightly acknowledged. However, I, too, wish to sound a note of caution about the notorious nature of the under-reporting of this area of crime, as many noble Lords have said. That has been acknowledged clearly by the CPS in its most recent report. We still have a long way to go before we can claim that we are having a positive effect on the majority of the lives of vulnerable women and girls in the UK.
The recession has been bad for everyone but it has been a total disaster for vulnerable women and their families. Tensions within households that can lead to violence and breakdown are exacerbated by unemployment, lack of certainty over permanent housing, lack of food, lack of heating, an increase in consumer debt—the list goes on and on.
These are desperate times for many vulnerable women and their children, who need the safety, the calm and the specialist advice of local refuges. Yet that safety from violence is being sought at a time of unprecedented cutbacks in the funding of women’s refuges. The executive director of the Colchester and Tendring Women’s Refuge says in its latest annual report:
“The ever present threat of cuts to statutory funding and the uncertainty around future commissioning of refuge services in Essex, means that we are constantly looking for additional avenues of income”.
She goes on to say:
“Last year, cuts to our Supporting People grant forced us to make difficult staffing decisions, and we are waiting to see what impact the Welfare Reform Bill will have on the Housing Benefit we receive on behalf of our residents, a significant part of our income for front line services”.
What action are the Government taking to ensure that the safeguarding and the survival of the women’s refuge network carries on at local level?
While it is right and proper to acknowledge the work that the Government are undertaking on behalf of vulnerable women, it is also only fair to point out that they did not start with a blank sheet. I am pleased to see my noble and learned friend Lady Scotland in her place. I am reminded of her own tireless work, and the work of the noble Baroness, Lady Stern, in tackling the victimisation of women. Convictions for rape increased by 45% under my noble and learned friend’s watch and I, for one, am proud of the way in which the previous Labour Government put women and children at the heart of their policy-making legislation.
I end by asking the Minister if she would bring the House up to date on those actions set out in the Government’s action plan which have a completion date of December 2012. If time is short, obviously the noble Baroness can do this in writing. I refer to points 10, 11, 14, 15, 17, 45 and 61. She will know what I am talking about. The Government’s work so far on the vital issue of violence against women will be eroded unless local government cutbacks are revised and economic growth is urgently achieved.
Baroness Thornton
My Lords, I start by thanking the noble Baroness, Lady Jenkin of Kennington, for initiating this very important debate. I have only a few minutes in which to speak and the hour is late. I am also feeling extremely cold, so if anyone notices a colleague falling asleep they had better wake them up, because I have been in this Chamber for about five hours and I am now very chilled. I shall limit my speech to putting to the Minister a few questions about the problems we face in the UK. We have had an extremely good debate that has covered both the world and many of the issues, and I congratulate noble Lords on doing that.
Like my noble friend Lady Crawley, I read with interest the latest report from the Home Secretary, A Call to End Violence Against Women and Girls: Taking Action—The Next Chapter, that was published in March this year. It sets out progress on the 88 recommendations in the action plan. It is indeed a comprehensive round-up of what the Government are doing and what they want to do. It reads well and in some parts it is very good. However, it may ring hollow in places because the broader policies being implemented by the Government will undermine many of the aspirations set out in the document. For example, on page 17 the Government want to achieve outcomes that include that:
“VAWG victims receive a good and consistent level of service across England and Wales”.
I wonder how this will be possible given what is happening on the ground.
I turn first to intelligence and information. In 2007 and 2009 the End Violence Against Women coalition was funded to provide what were called the Map of Gaps reports. Both of them were very important documents, and I shall highlight the main points. The first pointed to the fact that a third of local authorities provided no services at all for women suffering domestic violence, while the second report published in 2009 similarly reported gaps in services, pointing in particular to the problems faced by ethnic minority women. Of course, the funding for this ended in 2010. My question for the Minister is therefore about how information and intelligence is being gathered now. How accurate will the Government’s picture be of refuges and the services that are available in 2012? Who is collating the information and where and when will it be published?
What we know is that the cuts of 27% to local authority budgets appear to have been translated into cuts of 31% to the services that protect women who are experiencing violence. For example, Eaves, a local charity that supports vulnerable women, has reported that demand for its services has increased from 366 referrals for advice and support in 2009-10 to 548 in 2010-11, a 50% rise on the previous year. The 31% funding cut in the domestic violence and sexual abuse sector means a reduction from £7.8 million to £5.4 million. According to a Women’s Aid survey, on a typical day some 3,410 women and 2,502 children were living in refuge accommodation, but that 230 women seeking refuge—around 9%—were turned away due to lack of space. The number of independent domestic violence advisers, who we regarded as crucial, has been reduced. In 2011 eight major IVDA service providers supported 13,180 clients, but two of them faced cuts. This means that those services are not being provided.
I have two other issues that I wish to highlight because I think that they will have a terrible effect on services for abused women. One of them has already been mentioned by my noble friend. Refuges are going to be particularly hard hit by the changes being made to housing benefit. Are the Government monitoring the effect that this is going to have on abused women?
The second issue concerns changes to the legal aid structure that will make it more difficult for women to get legal aid when they need it. I recommend a briefing that has just been produced by Gingerbread, Resolution and Women’s Aid, which explains the problems that there are going to be for the domestic violence gateway criteria. Will the Minister assure the House that she and the Equalities Minister will be monitoring this issue and the effect that it is going to have, and will take action if what we think will happen happens?
I congratulate all noble Lords who have spoken. We have had a good and hard discussion but clearly there is much more to do.
Baroness Stowell of Beeston
My Lords, this has been a very powerful and timely debate, coming as it does within the 16 days of action following last Sunday’s UN International Day for the Elimination of Violence against Women. I congratulate my noble friend Lady Jenkin on securing this debate and on setting out so comprehensively the massive problem that we are trying to combat and its effects. I also pay tribute to all noble Lords who have contributed today. I know that this is an opportunity for me to respond, and lots of questions have been put to me, but I also consider it an opportunity to listen and learn, which I have certainly done.
We have covered a wide range of issues. In responding, I will talk briefly about international issues later on but will concentrate on the domestic—by which I mean national—front. I will write to all noble Lords if I fail to cover any of their points, which I know I will do. I know for sure that I am not going to be able to respond to the questions from the noble Baroness, Lady Crawley, about the action plan.
I think it was the noble Baroness, Lady Bakewell, who said that the scale of the problem was not being matched in global terms by action. In global terms, that is evident and it is why we continue to raise this issue and put it right at the top of all agendas. I will respond right at the start to the noble Lord, Lord Brooke, who asked a specific question about the number of domestic homicides and whether that has increased recently. I am not aware of any increase in those numbers, and certainly not in the last published crime statistics.
Violence against women is not a political issue; it is too important for that. Combating it for good is a real ambition that we all share. This Government’s strategy, which we first published in 2010 and which has been referred to by many noble Lords today, has that as its clear purpose. It can be explained quite simply in three parts: it seeks to help prevent violence against women happening in the first place; to provide adequate levels of support where that violence, regrettably, occurs; and to bring perpetrators to justice. All our work in these areas is in partnership with many other agencies and voluntary organisations, some of which noble Lords have referred to today.
Our strategy and our commitment to it is underpinned by the guaranteed funding of £40 million, which we have allocated until 2015, for specialist local domestic and sexual violence support services, a range of national phone lines, existing rape centres and developing some new centres, where there are gaps in provision.
While I am talking about funding it is probably the right moment to answer some of the points that the noble Baronesses, Lady Thornton and Lady Crawley, made about funding. Of course I understand people’s concerns about potential cuts to any kind of local authority funding. I can absolutely see why people would raise that. However, we do not recognise the 31% figure that has just been quoted. Many local authorities are not making cuts and indeed some are increasing their funding. I point to Westminster as one example, which is putting its funding for outreach work up from £440,000 to £760,000. All that said, to try to understand the situation around local funding further, the Home Office is holding a round-table meeting with the Local Government Association in January.
While we are talking about local services and local provision, I make it clear that it dismays me as much as everyone else to hear of any woman who is turned away if they are seeking refuge. I do not want to hear that; none of us does. I would like to think that provision exists to meet everybody’s needs. While some women may be turned away from some of the refuges designated as local authority refuges, they are not the only place where women seek refuge. If refuge is not available to them there, it is often available elsewhere. We fund a database delivered by Women’s Aid which enables those working with victims to identify appropriate services and refuge vacancies.
If I have misunderstood the point on refuges and housing benefit, I shall come back to it in the letter with which I shall follow up the debate. The concern expressed by women and women’s groups about women in refuges who are in receipt of housing benefit has now been addressed. It was a legitimate concern and it is my understanding that it no longer remains a problem.
The noble Baroness, Lady Stern, asked about the future of SARCs—sexual assault referral centres. These have been locally commissioned up till now on a collaborative basis by police and NHS primary care trusts. We have decided that, for the future—at least in the short to medium term—responsibility for them will rest with the NHS Commissioning Board.
The noble Baroness also asked what role PCCs would play in tackling violence against women. I shall not go into great detail about this, because I answered a Question on it recently. The best way in which I can respond is to point to what Boris Johnson has done here in London, because he has been the nearest example that we have had to a PCC before those who were recently elected. It has been striking how, in working with London women’s groups, he has diverted some of his own funding alongside national funding to increase the number of rape centres in London. He shows us that there is real potential for violence to be tackled through the new police and crime commissioner structure.
If we are to end violence against women and girls, we need to challenge attitudes—that has been made clear by many noble Lords today—and raise awareness of abuse and educate young people. There is always more that we can do in this area and we have to keep looking for new opportunities to do so. One of the things that we are doing in the 16 days of action is to restart this very weekend the teenage rape prevention advertising campaign. Its target audience is 13 to 18 year-olds and it will run until the end of January. The noble Baroness asked about the website alongside that. That will be available and be part of that campaign.
My noble friend Lady Bottomley raised questions about awareness of domestic violence in the workplace and the noble Lord, Lord Brooke, said that it was important that we debate domestic violence. I hope that we can encourage employers to do this in the workplace and encourage women who may be feeling isolated to come forward. I have taken on board that point.
The noble Baroness, Lady Howe, and my noble friend Lady Hussein-Ece referred to sexualisation of women and children. This is of course a matter of great concern. Since the controls on online pornography recently introduced by ISPs, the Government have reconsulted on online controls. Fairly soon we should be making public some new thoughts on the way forward to build on what has already announced. We are very aware that this is something that continues to concern all parents. With regard to child sexualisation, one useful initiative was the launch of ParentPort—a single website for complaints and feedback to regulators if parents see any inappropriate advertising located where children might see it.
Obviously we can use the law and strengthen it to prevent violence against women and girls. My noble friend Lady Brinton referred to the new stalking offences. I share with her and those others who commented on this the fact that we as a Government are proud to have introduced these new laws but we recognise the contribution made by so many people to make that happen, including Members of this House.
I will skip along because I am running out of time. We are introducing lots of new measures in terms of new laws. One of the most important ones is about extending the definition of domestic violence to include 16 and 17 year-olds, and another is for the definition to include coercive control—or mental cruelty, as other people might recognise it.
My noble friend Lord McColl made a very interesting proposal about the collection of data on potential domestic violence. I have already asked my colleagues in the Home Office to raise that with the Department of Health because my noble friend was kind enough to give me advance notice of it. I will certainly come back and write to him about that.
The noble Baroness, Lady Rendell, spoke in great detail about female genital mutilation so I will not go over that in any detail myself. I am so pleased that she welcomed what Keir Starmer announced at the weekend; we very much share her view that this is absolutely vital. Having that law in place is not enough. We need prosecutions, and action to bring prosecutions to bear.
On the international agenda, my noble friend Lady Jenkin trailed the Commission on the Status of Women next year, the focus being on the elimination and prevention of all forms of violence against women and girls. I hope it will give some comfort to the noble Baroness, Lady Bakewell, and my noble friend Lady Hussein-Ece that my officials have already started preliminary work to ensure that this agenda moves on next year and is not just something that we have ambitions for that are not fulfilled.
Also in the international arena next year, the UK will take the presidency of the G8. As my noble friend mentioned, the Foreign Secretary is using the profile of that forum—the world’s richest countries—to promote the UK’s initiative on preventing rape as a weapon of war. I am so pleased that someone of that rank in the Cabinet has taken this on board and will take it forward. If noble Lords have not yet had the opportunity, I urge them to read the speech that he gave about that earlier this month.
Lots of questions have been asked; I have a pile here of things that I need to come back on. Forgive me that I am not able to cover them all now. In closing, we are committed to maintaining our strong lead on both the national and the international stages. Ending violence against women and girls is not possible for Government alone. The progress that we have made would not have been possible without the hard work of so many people, including Members of this House. The challenge now is to sustain that collective commitment, to challenge the inequalities and attitudes that can encourage violence against women and to drive improved service for those victims. I believe that we are on the right path to creating a society where no women or girl need live in fear, but we are clearly far away from actually getting there.