Family Relationships (Impact Assessment and Targets) Bill [HL]

(Limited Text - Ministerial Extracts only)

2nd reading (Hansard): House of Lords
Friday 23rd February 2018 Lords Chamber

[Lord Kirkwood of Kirkhope]

That is a helpful intervention, because I absolutely agree with that. Family impact assessments are an important tool in getting to that point. That was the point I was going to make.

We need to look not only to local authorities—as the noble Lord, Lord Blencathra, and the noble Baroness, Lady Massey, mentioned—but to try to capture some soft support systems in neighbourhoods and communities in future. That is new for me; I look to the noble Baroness, Lady Stroud, when I say this, but I have always kept a bit of distance from the agenda that she has been very positively promoting in her own way, because I always had a suspicion that Conservative Governments and Conservative Chancellors in the past have sometimes used it as a way of saying that we do not really need to keep up the benefit expenditure. I am in favour of individual entitlements to benefits, and when you look at the cuts, freezes and caps, that has not been made any easier. But even I—if I can put it that way—am now thinking that we really need to look at some of these symptoms that the Centre for Social Justice and others have been looking at, as additional methods of support. We can make it more cost-effective if we have more effective family policy, and I think that this Bill does that, particularly in setting up objectives and targets, looking at reporting and being transparent and honest about that reporting.

I have a couple of points to contribute to the debate. The DWP has an enormous amount of data. The quest of the noble Lord, Lord Farmer, could be assisted considerably if some of the really clever people in the research department there thought about how to cut across and tabulate some of the real-time information. There is a minefield—no, not a minefield, a mine. What am I trying to say?

[The Parliamentary Under-Secretary of State, Department for Work and Pensions (Baroness Buscombe) (Con)]

A mine of information?

[Lord Kirkwood of Kirkhope]

Ministers have their uses. There is a mine of information in the DWP, and Ministers should go back and ask whether some assistance can be given to this kind of policy programme. The data needs to be made available to local authorities, although you obviously have to be careful about data protection. There are rules about that, but you should be testing them to the limit of what is useful if that makes a difference to identifying some of the anticipated problem families. Big data is now so clever that you could begin to get, not algorithms but almost algorithms, which would anticipate where the problems were. You could make available the priorities in terms of the spatial dimension in deprived areas; and professionals in the department, and in local authorities, could start to be provided with data on circumstances that would help them to anticipate where future problems would arise. In support of family impact assessments, the department should do a little bit of work to see whether any help could be provided in that direction.

I spent a very interesting morning at the universal credit centre in Dover, where I observed two applications. I am saying this against myself—I was really looking for problems that I could come back and attack the DWP about, but they both went swimmingly well. It was clear that the job coaches were signposting people who had individual problems. That is what they should be doing, but they could be doing more of it. The noble Lord, Lord Farmer, rightly said that policy is pointed at individuals. Universal credit is actually pointed at households. The claimant commitment could go as far as saying to people coming on to universal credit for the first time that, if anyone who has signed up to it sees problems arising in their household that might lead to family breakdown, they could phone. The “Ghostbusters” number should be that of the universal credit coach who could hold the ring and say, “Let’s see what we can do”. I know that they have only got a certain amount of time available and they are not looking for things to do. However, in the course of these interactions with people coming on to universal credit, we might start to look at family problems a bit more broadly. That is a good place to start the discussion.

Finally, I say to the noble Lord, Lord Farmer, that if this does not work, we should think about getting more robust about enforcing it. If the DWP cannot do it, it should go to the Cabinet Office or to somebody who has control of all the Secretaries of State, now that I hear they are all in play—I hope that includes the Treasury. In the course of discussing the Bill, I hope that this House will send a clear signal to central government that we are not going to allow the family test failure to happen again on this Bill. If they do not get it right, we will come back looking for more and we will not be long in doing it. I support the Bill and encourage the noble Lord, Lord Farmer, whom I thank for the opportunity for this debate. I will stand shoulder to shoulder with him in his future work in this important area.

--- Later in debate ---

[Baroness Buscombe]

My Lords, I thank my noble friend Lord Farmer and congratulate him on securing a Second Reading debate on the Bill. I also thank all noble Lords who have participated in today’s excellent and thoughtful debate. My noble friend has worked tirelessly to strengthen families. This is evident both in this debate and beyond, in particular through his work to strengthen the family relationships of prisoners, who are often the most in need of a supportive family environment. I agree with the noble Lord, Lord Kirkwood, and my noble friends Lord Framlingham and Lady Stroud that we value his work and the message to him is: please keep going.

The Government have a critical role to play in supporting families. Strong families, in all their forms, are critical to our success as individuals and as a society. I am pleased to see, and to learn from having been in the Department for Work and Pensions for several months, that families have been climbing the political agenda in recent months with debates being held on how the Government can support families and on the critical institution of marriage and its place in government policy. However, I agree with the noble Baroness, Lady Tyler, that we need to do more.

It is right that the Government continue to champion the family as the bedrock of a strong society. The family test, which has been in place since 2014, has helped policymakers to put families at the heart of policy development. We developed the current family test in conjunction with the Relationships Alliance, a group of expert organisations with a rich depth of knowledge about family relationships and functioning. Led by the Department for Work and Pensions, we continue to engage with other government departments to help them to implement the family test, and by doing so, ensure that families are considered early in the policy-making process.

Yes, families come in all shapes and sizes, in the words of the noble Baroness, Lady Massey of Darwen, and the noble Lords, Lord Alton and Lord Shinkwin; that is a critical point that should be made. However, I say to the noble Lord, Lord Kirkwood, that there is no question but that, for example, the Cabinet Office is looking very closely at how we can do more to strengthen policies in support of the family, as indeed we are across government.

My honourable friend in another place, Oliver Dowden, who is the Minister for Implementation, led a debate on 8 February this year on the strengthening families manifesto, during which he said:

“Within the Cabinet Office, we are continually looking at ways to measure the impact of policies in relation to the family. We currently analyse that impact through mechanisms such as the implementation unit, which falls within my brief. That is a central part of the initiative”.—[Official Report, Commons, 8/2/18; col. 659WH.]


I should explain to noble Lords that the implementation unit is a cross-governmental unit to support departmental capability and public service reform.

With regard to the statutory basis for the family test, I reassure noble Lords that the Government continue to be committed to the family test and the benefits that it brings by ensuring that families are central to all the policies that we develop. The family test and the five questions within it are intended to comprise a broad and flexible tool that encourages consideration of the family from the first stages of policy thinking and throughout policy development. Good policy-making requires giving consideration to a range of important factors, and the family test is a tool to assist policymakers to take into account impacts on family relationships and family functioning.

I am pleased to see that the proposals for the family impact assessment laid out in the Bill take into account all the factors that we consider as part of the current family test. Indeed, we agree that the Government should consider these factors, and the family test already supports this to happen throughout government. However, we are concerned that placing such an assessment on a legislative footing could risk losing the flexibility to adapt and change. I have been very struck by a number of the ideas and suggestions from noble Lords in today’s debate. Embedding such an assessment within primary legislation would mean that we lost that flexibility, which is an important feature of the current family test.

Noble Lords have made reference to the use of different language and talked about a different narrative and changing the culture. I believe it is very difficult to change culture. I say that as a lawyer; indeed, as a lawyer I am rather cynical that embedding policy in primary legislation can always succeed in changing culture. I am sure all noble Lords present will know that the recent report from the Jo Cox Foundation recommends that the Government should consider amending the family test to consider the matter of loneliness, which we know is a significant problem for many people across this country. Indeed, I would see loneliness in a sense as a subset of family and the breakdown of family, and that is something that we should consider in the round.

My noble friend Lord Framlingham spoke passionately about the impact of the internet on children and their response within their family and beyond. This is where, I fear, the truth is that legislation is a double-edged sword. It is easy to exclude if it is not on the list; indeed, the noble Lord, Lord McKenzie, made reference to the list of what constitutes the structure of a family. We have to take great care and think about future-proofing. However, that is not to say that we disregard much that is in the Bill or the spirit behind it with regard to the development of our policy.

The Bill also raises the matter of reporting on the costs and benefits of extending family impact assessments to local authorities—something raised by several noble Lords. We know that local authorities and the wide networks of partner organisations they work with are best placed to understand the families living in their areas, which is why central departments, including the Department for Work and Pensions, work closely with local areas on a range of family issues.

My noble friend Lord Farmer asked how many information exchange sessions and courses on implementing the tests had taken place over the past two years. The noble Lord, Lord McKenzie, also referenced the tests and the number of courses. When the family test was first introduced four years ago, the Department for Work and Pensions ran a number of seminars and sessions and supported departments with evidence packs and guidance. We continue to support departments to build capability of their own in this area, although I noted noble Lords’ emphasis on the importance of consistency across departments.

The work being carried out at the moment at the Department for Work and Pensions includes the new reducing parental conflict programme, in which I know my noble friend Lord Farmer has taken a keen interest. Since today’s Bill was laid last June, we have seen an increase in the total funding available for this vital work to up to £39 million. I note what the noble Lord, Lord McKenzie, said about cuts, but in many instances they have been accompanied by other support systems for the family. We are very careful to ensure that what we do does not drive breakdown in family relationships through income poverty, which he referenced. We understand, appreciate and accept that that would be entirely counterproductive.

Noble Lords have all stressed that it takes a lot more than money, critical though that is, to support the family. Through our new programme, we are actively supporting local authority areas across England to embed proven parental conflict provision into their mainstream services for children and families, as well as building and sharing the evidence base for what works to improve the quality of interparental relationships.

As we work with local areas on these critical issues, we will be able to gain a greater understanding of what support and guidance local authorities need in order to best consider the impacts of policies on families. Local authorities also need to retain flexibility to adapt and change how they assess impact on local families, including the ability to take local factors into account.

I was struck by what the noble Lord, Lord Kirkwood, said about his visit to Dover, which I have read all about. I am pleased that he found it a positive experience attending the jobcentre there. I am also pleased to be able to say that as work coaches in jobcentres become more familiar with the system of universal credit, they are enjoying and getting great satisfaction from, in a sense, going beyond their brief to support in a more holistic way the welfare, in the biggest use of that word, of those in front of them. I will also take what he said back to the department, because he is absolutely right: all the time we must think about ways in which we can so easily add to our support to the family through communication and signposting, which is so important.

I turn to the issue of family stability and the provision in the Bill which would require government to establish objectives, indicators and targets for promoting strong and stable families. We believe that families are vital. Not only are they the basic building block on which we build a successful economy and a stable society, but growing up in a loving family environment helps children develop into successful adults.

As my noble friend Lord Shinkwin said, without families there is no sustainable society. I was also struck and concerned when my noble friend used the words, “systematic devaluation” of the family, which was very much echoed in the speech by my noble friend Lord Framlingham. That is something that we should take great care of when thinking through our policy: how we respond to that idea of systematic devaluation of the family. But I was also struck by what was said in response to that, in a sense, by the noble Baroness, Lady Massey, who has spoken on this subject for so many years in your Lordships’ House, with such eloquence, expertise and experience—and I so welcome her contribution today. She suggested that we should ask what makes a family go right, and she is absolutely right. It is really important to think about what lends stability to a family. That is a very different experience, in many ways, from the experience and extraordinary expertise of the noble Baroness, Lady Tyler, in the work that she has carried out on all the evidence of what lends to the negative impacts of family breakdown.

To demonstrate our commitment to these key issues, last April we published Improving Lives: Helping Workless Families. This, with its accompanying analysis, set out nine national indicators designed to track the Government’s progress towards tackling the root causes of poverty and disadvantage. It includes the new relationship distress indicators, which measure elements of parental conflict in both intact and separated families. This was based on recent evidence, which shows that, when it comes to the critical issue of improving children’s outcomes, the quality of the relationship between the parents is far more important than the structure of the family. Indeed, my noble friend Lady Stroud referenced adult relationships, and we cannot underestimate their importance. As I mentioned, we are beginning to tackle the problems faced by workless families, who are three times as likely to experience parental conflict, through our new reducing parental conflict programme.

My noble friend Lord Blencathra referenced the Armed Forces and the importance of supporting them in this area. As the Department for Work and Pensions representative on the newly formed Armed Forces Covenant and Veterans Board, I reassure my noble friend that I am very much focused on the welfare of veterans and of our serving personnel. We are constantly looking at the range of extra support we provide to our Armed Forces families. Apart from anything else, as my noble friend said, retention of our Armed Forces personnel and their welfare is of vital importance.

I know that all the noble Lords present understand the importance of supporting families, and the benefits that strong family relationships can bring to us all. My department will continue to encourage active use of the family test, and continue the discussions across Whitehall, which will include the need for policymakers to consider whether any new policy supports strong and stable families or undermines these vital relationships. On a personal level, I am particularly keen to work with colleagues across government to reassess, perhaps, some of the narrative. A number of noble Lords today have referenced the use of language—how we explain what we are trying to achieve. Why do we use the term “conflict”, for example? It sounds more like a war zone—and, yes, is “test” the right word that we should use? We should not be afraid to revisit that issue.

I thank all noble Lords who have participated in today’s debate. I shall write to those to whom I have been unable to respond. I look forward to working with all noble Lords, because this is more than a Conservative Party issue—it is cross-government and cross-party. It is too important to be part of politics. So I look forward to working with all noble Lords as we strive to build a society that works for everyone, with the family at its core.