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Baroness Chisholm of Owlpen
That this House takes note of the need to eliminate domestic abuse, and to support victims and survivors.
Baroness Chisholm of Owlpen (Non-Afl)
My Lords, I felt this was a timely moment to bring this debate to our Chamber. We have just had 16 days of action—which started with the International Day for the Elimination of Violence against Women and ran through until Human Rights Day on 10 December—as part of a campaign that seeks to end violence against women. Last month, a documentary by Her Majesty the Queen, “Behind Closed Doors”, aired on television, telling the harrowing experiences of women subjected to domestic abuse, with victims including an MP and a police chief inspector braving speaking to the camera.
There is to be a review on the law of homicide and last week Jess Phillips launched a pilot for the new domestic abuse protection order. We must not forget that Christmas often brings an increase in calls to the police reporting cases of domestic violence. Financial pressure and increased alcohol can lead to outbursts and this in a period with fewer opportunities to report or to escape to safety.
According to the 2021 Act, domestic abuse is where the victim and perpetrator are
“16 or over and are personally connected to each other”
and
“it does not matter whether the behaviour consists of a single incident or a course of conduct”.
Domestic abuse is defined as an incident or pattern of incidents of any of the following: controlling, coercive, threatening, degrading or violent behaviour, including sexual violence, and economic abuse.
The origins of the present Act can be traced back to the Domestic Violence and Matrimonial Proceedings Act 1976 which aimed to protect battered wives. To me, that does not seem that long ago and all of us, I am sure, can remember watching Punch and Judy on the beach or reading Andy Capp, where domestic violence was seen as humour. Thank goodness, to most of us, that is not the case today.
In the majority of cases, domestic violence is carried out by a partner, an ex-partner or a family member or parent. This heinous, devastating crime can be experienced by anyone, regardless of race, ethnic or religious group, sexuality, class or disability. If you know three women or seven men, statistics suggest that you know one who has experienced some kind of partner abuse or violence.
Last year, there were 2.4 million victims—1.7 million women and 699,000 men—picked up by the data, but we know that it is on the increase, with almost certainly more victims than I have mentioned. Women are more likely to be victims and 95% of those contacting services are women. In a survey, it was found that police received domestic-related calls every 30 seconds.
Women should never feel that it is safer to stay with a man than to leave him but, according to the Femicide Census, 38% of women killed by an ex-partner were killed within the first month of separation and 89% within the first year. A 2023 NHS survey stated how domestic violence escalates in pregnancy, with one in three pregnant women experiencing some kind of domestic abuse. Domestic violence is more common than any other health problem among women during pregnancy.
According to an NSPCC survey, one in three children have lived with an adult perpetrator of domestic abuse. These children are deeply affected, living with bated breath for the next verbal or physical assault, with psychological problems such as anxiety, regressive behaviour, anger and other symptoms of depression, leading well into adulthood.
Age is no barrier. Abuse of older people is underreported according to many people. Older victims are often invisible victims. Older women and men may be affected by what are perceived as low-level individual instances that are part of a long-standing pattern of cumulative abusive behaviour. Many older victims develop coping mechanisms and accept domestic abuse as part of everyday life. They can also experience a feeling of shame because they have stayed with their abuser for many years.
It is also reported that one in five teenagers under the age of 16 have been victims of violence due, in particular, to coercive behaviour in their dating relationships. Many are as young as 13. The moving campaign by the parents of Holly Newton—who was stalked and murdered aged 15 by her ex-boyfriend—brings a devastating reminder of what young victims are experiencing. The age limit of 16 and over is now under scrutiny as the law prevents victims under 16 calling it domestic abuse. In the Young People’s RSE Poll 2024, 74% of girls and 54% of boys surveyed believed that the primary school curriculum should address ideas of how children should behave in their relationships.
The statistics mentioned only scratch the surface and, I hope, set the scene for all other noble Lords to suggest how we can move forward. I feel there is at last so much happening in this space—so much more awareness that victims will feel that they are not alone. The bravery of those who are speaking up about their horrific experiences, and the charities, victims’ advocates, refuges and many more organisations which do so much in this space, set the scene for all of us to join them. Every day we read or see on social media the horrors that happen behind closed doors. Let all of us be aware that, when we know someone who begins to behave differently—does not want to meet up, does not want us to visit them at their home, only speaks briefly or not at all on the phone—we should ask ourselves why.
I have had many moving emails from victims relating how much more is required in support when they bravely start this journey away from the abuse they have experienced, and I look forward to hearing from all noble Lords today about how we can move forward to really help these victims who are desperately in need of support.
Baroness May of Maidenhead (Con)
My Lords, I declare my interest as a member of the advisory council of the Employers’ Initiative on Domestic Abuse. I congratulate the noble Baroness, Lady Chisholm, for bringing this timely debate to our Chamber and thank her for setting out so ably the extent and horror of the domestic abuse that sadly takes place across our country today.
I will make a number of quick points to the Government about how we are dealing with domestic abuse. My first is about the Domestic Abuse Act 2021. It is important that we see the full aspects of that Act implemented as quickly as possible. It is very good that the Government have announced pilot schemes for the application of domestic abuse protection notices and domestic abuse protection orders. It is important to learn from those pilots, but the sooner the DAPNs and DAPOs are in place across the country the more victims will be protected.
My second point is that, while it is absolutely right that we should consider, think of and have concern for the victims of domestic abuse, there is another aspect which we all too often overlook—the impact it has on our economy. There are many people who are the victims of domestic abuse who on some days will simply not feel able to go into their workplace, but who are unable to talk to their employer about what is happening to them and unable to get the support that they need.
That brings me to my final point—the role that employers can play in dealing with domestic abuse and supporting those who are the victims. I mentioned my connection with the Employers’ Initiative on Domestic Abuse, set up by the former Parliamentary Commissioner for Standards, Elizabeth Filkin. It does very good work with employers, but it is important to encourage employers to set an environment in which those of their employees who are victims of domestic abuse are able to come forward and feel able to admit what is happening to them, so they can be signposted to support, but also so they can feel that the workplace is a safe environment for them. It becomes more difficult when the perpetrator is also an employee in the same workplace. But an enlightened employer, with the right advice and the right support, can also ensure that that situation is managed carefully.
I urge the Government to make sure that the Domestic Abuse Act is implemented fully as soon as possible, and I urge all employers to recognise the role that they can play. I ask the Government also to recognise that employers should not be forgotten in looking at how we can deal with domestic abuse.
Baroness Hazarika (Lab)
I thank the noble Baroness, Lady Chisholm, for securing this important debate and for such an eloquent, powerful and well-researched opening speech. Domestic abuse is a stain on our society; it not only kills women but scars their children and perpetuates a cycle of pain and violence. We have all been heartbroken by the case of Sara Sharif, which we have seen in the past few days. We know this: that violent and controlling men do not just beat women—they often beat their own children.
All of us across the House want to tackle this issue, and I, too, pay tribute to the many brilliant women’s organisations in the sector. I pay tribute particularly to Women’s Aid, which has just marked its 50th anniversary. These organisations do excellent work, giving voice to women who often feel that the world and every public institution has failed them. They listen to these women and, most importantly, they believe them—women like Claire Throssell MBE. Claire had a violent partner. She told the court that her ex-husband was capable of hurting her children. He told her that he would, to punish her, and in 2014, during an unsupervised contact visit, he killed her sons, Paul and Jack. In her own words:
“It took just 15 minutes for my life to end and my existence to begin”.
That did not need to happen, and so many of the relentless tragedies that we shed a tear over do not need to happen if we listen to victims and we listen to women like Claire.
I hope that this new Government will listen to the victims. They have got off to a good start, and there are many good champions within the Government, particularly the honourable Jess Phillips, MP. But we need a system that is designed for victims, particularly women and children. At the moment, it feels like the whole system—from the family courts to the police, the criminal justice system and the Child Maintenance Service—exists to grind women down and exhaust them with all the bureaucracy and expense, and to punish them again and again.
Many people think that it is all over for a woman when the immediate violence stops and she leaves her partner, but that can often be just the beginning of a nightmare journey, trying to survive economic abuse and coercive control, with the ex-partner using the family court system against her and accusing her of all sorts. The emotional, psychological and financial abuse can carry on long after those initial bruises fade. We must listen to women and work with organisations such as Women’s Aid and Surviving Economic Abuse.
Finally, I ask my noble friend the Minister: will he consider recognising domestic abuse as the national emergency that it is?
Baroness Doocey (LD)
My Lords, I, too, thank the noble Baroness for securing this debate. The Prime Minster has pledged to halve violence against women and girls within 10 years. At the moment, police receive one call every minute about domestic abuse. If the Government achieve their aim of cutting this by half within 10 years, that means the police will receive one call every two minutes about domestic violence. This is not going to give comfort to the 2 million women who, every year, are victims of male violence, because this scourge on our society accounts for around one-fifth of all murders, as well as a rising number of suspected victim suicides.
Yet, the scale of this problem is still not widely understood, and exposure to extreme porn and misogyny is pushing violence against women to epidemic proportions. Criminal justice is not the whole answer; our justice system must step up and do much better for victims.
Domestic abuse happens in relationships and is often complex, yet too many police first responders are still failing to identify what offences have occurred and to respond appropriately. Too many still minimise the risk and harm experienced, failing to understand why a woman might have little choice but to stay with her abuser.
We welcome the Government’s new protection orders, but if the police do not get that first call right, opportunities to impose them will continue to be missed. Currently, orders are rarely used and poorly enforced. This must change, with specialists embedded with front-line officers to build victims’ trust and identify what type of order, if any, is appropriate.
Then, there is the absolute scandal of court backlogs. Domestic abuse hearings are currently being listed more than two years ahead, but most victims do not remain in the process for two months, let alone two years. Almost half withdraw within five days of reporting an incident, and the majority drop out before a charge is even filed. Recognising this, one police force recently piloted a programme to get all domestic abuse cases before court within two weeks, many within 72 hours. Women were turning up with black eyes, and the early guilty plea rate was remarkable. But without enough court space, sadly, the pilot was cut short.
It is also critical that sentencing levels for domestic abuse-related incidents do not dip in the face of prison capacity concerns. Unfortunately, a number of domestic abusers have been freed under the Government’s early release scheme, largely because England and Wales do not have a specific offence of domestic abuse. Instead, these cases are prosecuted under general offences such as actual bodily harm or common assault. So the Liberal Democrats this week have tabled a Bill which would put into law a specific set of domestic abuse-aggravated offences, and I hope the Government will support it.
Having a 10-year plan is not the answer. We need a repeat of the swift justice that we saw following the summer riots. The rioters were stopped in their tracks because they knew that there was a will to identify, charge and prosecute them immediately. If it could be done then, it can be done now.
Baroness Gohir (CB)
I, too, thank the noble Baroness, Lady Chisholm, for securing this debate. I declare my interest as CEO of Muslim Women’s Network UK. I shall focus on four points: funding, domestic homicide rates among minority ethnic women, spiritual abuse, and transnational abandonment.
No funding was pledged to tackle domestic abuse in the last Budget, which was surprising given Labour’s manifesto commitment to reduce violence against women and girls by 50%. The current funding crisis and the rise in employer national insurance will result in many women’s organisations scaling back their services, taking away vital support for domestic abuse victims. Can the Minister provide assurance that the next Budget will announce funding to tackle domestic abuse?
Domestic homicide rates for minority ethnic women are around 22% higher. This issue can be addressed only if we know why it is happening. Will the Government agree to carry out a public consultation exercise to find out what the contributing factors are to the higher rates? This will help to save lives.
Spiritual abuse is not legally defined and is not limited to abuse by faith leaders. It is also a form of domestic abuse, where families and partners may misuse religion to control and manipulate women and children in particular. A legal definition could help to better recognise this form of abuse and hold perpetrators to account. Will the Government consider having a legal definition of spiritual abuse? Will the Minister write to me about the number of spiritual abuse cases recorded by the police in the last five years?
Transnational abandonment is another form of domestic abuse. This is when—usually—a husband takes his wife abroad on the pretence of a holiday and leaves her there, sometimes with children. The wife is usually on a spousal visa waiting for indefinite leave to remain. Helplines such as the one that I run are then left to apply for documents and pay for flights to get the women and children back into the UK. In the first six months of 2024, there were 28 transnational abandonment cases.
Being abandoned in this way is traumatising. It is time to make this a specific criminal offence. Perpetrators need to be held accountable for treating women as though they are property that can be discarded in this way. Recently in Australia, a man who had deceived his wife into leaving the country left her in Sudan. He was then convicted of exit trafficking and sentenced to more than four years in prison. It is time for perpetrators of this type of domestic abuse to also be convicted in the UK. Will the Government consider a law change here?
Baroness Meacher (CB)
My Lords, may I make a brief intervention to suggest that it is not always men abusing women? I am very familiar with women who control the behaviour and lives of their spouses, over many years, with threats that often involve children.
The Lord Bishop of Newcastle
My Lords, homes and relationships should be places where people feel safe and loved but, with Northumbria Police receiving about 115 calls about domestic abuse per day, this is sadly not the case for many. The north-east has particularly high rates of domestic violence, at 19 per 1,000 population according to Health Equity North, while the average for the whole of England is 13.
Steps are being taken to reduce this number, with Northumbria Police having placed domestic abuse specialists in their emergency call rooms since 2022. The project has received positive feedback, and I welcome the Government’s plans to introduce this more widely through Raneem’s law.
At the end of May, I met the family of Holly Newton, a 15 year-old girl who was stalked and murdered by her ex-boyfriend in Hexham, Northumberland, which is in my diocese. The noble Baroness, Lady Chisholm, mentioned Holly in her opening speech. The law states that this case was not one of domestic abuse, as both the victim and the perpetrator were under the age of 16, and it was classified as knife crime. This places an emphasis on the weapon rather than the build-up to the crime, which showed clear signs of domestic abuse.
In light of the recent Youth Endowment Fund survey of teenagers aged 13 to 17, which found that 49% had experienced some form of violent or controlling behaviour in their relationships in the past year, what consideration have the Government given to lowering the age limit to include those under 16 in the definition of domestic abuse?
I commend the Government’s ambition to halve violence against women and girls in a decade, but I fear that it is not possible without more focus on prevention. Holly’s family have raised the need to improve relationship education. The YEF survey also found that only 40% of respondents had lessons on building healthy, respectful romantic relationships, and even fewer teens received practical advice on recognising or addressing unhealthy relationships. What steps are the Government taking to ensure that teenagers receive high-quality education on healthy relationships and spotting signs of violence and coercion?
Bold ambitions require bold actions. I hope that this Government have the courage to take the necessary actions, centring the voices of victims and survivors.
Baroness Barran (Con)
My Lords, I join other noble Lords in thanking my friend the noble Baroness, Lady Chisholm, for securing this debate, and my noble friend Lady May of Maidenhead for her long-term leadership on this issue. I also thank Her Majesty the Queen for the compassion that she has shown on this issue, including by becoming patron of SafeLives, the charity that I founded almost 20 years ago.
I want to share with the House three things that I learned during my time at SafeLives. First, one of the principles to which we worked was: what would you want for your best friend if she was experiencing domestic abuse? We decided on a dedicated specialist who supported her, whatever the issues, be they criminal justice, housing or her children, and for that person to be the linchpin in co-ordinating other agencies to meet her needs.
Secondly, we too had the ambition of halving high-risk domestic abuse, so I share the Government’s ambition here, and you cannot do it if you do not work with perpetrators. We worked with two other charities and founded the Drive Partnership, which worked with the most high-risk perpetrators of abuse. One of the first young men we worked with had already had 10 partners by the age of 24 and had multiple children by those earlier relationships. Without working with him we can make his current partner safe, but we must make his future partners safe by changing his behaviour.
Thirdly, as the noble Baroness, Lady Hazarika, said, we are all thinking today of the tragedy of Sara Sharif. We must keep children central. Even the press coverage of her death talked about her parents having a volatile relationship. The child was killed, and we can imagine what happened before that. We did a big research study which found that 60% of the children that we looked at had lived with domestic abuse since they were in the womb, with everything that meant for their futures.
I will close with two other thoughts. First, please let us not forget health in all this. We piloted putting domestic abuse specialists in A&E and safeguarding settings. Women who would never talk to the police were able to disclose what was happening to them. Finally, as others have said, we learned more by listening to survivors and families who had lost their loved ones than by doing anything else.
Baroness Gale (Lab)
My Lords, I thank the noble Baroness, Lady Chisholm, for bringing this debate before us today. I agree with her that the need to eliminate domestic abuse is a worthy and crucial ambition, as is supporting victims and survivors.
Violence against women and girls is not inevitable but perhaps should be regarded as a national emergency. According to the Office for National Statistics in its latest bulletin, Domestic Abuse in England and Wales Overview: November 2024, an estimated 2.3 million people aged 16 and over experienced domestic abuse in the year ending March 2024.
Two of the purposes of the Istanbul convention—or, to give it its full title, the Council of Europe Convention on Preventing and Combating Violence Against Women and Domestic Violence—are to
“protect women against all forms of violence, and prevent, prosecute and eliminate violence against women and domestic violence”,
and to
“contribute to the elimination of all forms of discrimination against women and promote substantive equality between women and men, including by empowering women”.
The previous Government ratified the convention in 2022, and we were all very happy when that happened, but there were reservations on Articles 44 and 59. This Government are reviewing Article 59, and I look forward to the Minister reporting on that review soon, as it will be of great help to migrant women who are victims of domestic abuse. This convention is fully in line with what we are debating today.
I am pleased that this Government have set out an unprecedented ambition to halve violence against women and girls within a decade, and they have announced new measures to tackle spiking, stalking and other crimes that disproportionately affect women and girls. They have already taken significant steps to transform the policing response to these awful crimes.
I am pleased that the noble Baroness, Lady Chisholm, mentioned older people. Older people who are victims of domestic abuse are often overlooked and not taken seriously. Hourglass, the charity that campaigns for better protection of older people, of which I am a patron, is calling on the Government to begin a consultation on developing a strategy to tackle the abuse and neglect of older people. To make sure that we see the full picture of the abuse of older people, police forces should implement a consistent and accessible data collection system in each police force, categorising crime according to age. Will the Minister agree to look at this, as it is so often overlooked?
Lord Meston (CB)
My Lords, the Government’s aim to halve violence against women and girls in a decade, target perpetrators and address the root causes of abuse and violence is clearly ambitious. It is perhaps less ambitious than the elimination of domestic violence, referred to in the Motion before us.
Statistics do not suggest either aim to be possible. The World Health Organization reports domestic violence to be the largest cause of morbidity in women aged 19 to 44—more than wars, cancer or motor accidents. Domestic abuse used to be seen as essentially a private problem, except in extreme cases. Changed perceptions and the Human Rights Act have given the state responsibilities for positive, preventive and protective action, now reinforced by the Istanbul convention, signed in 2012 and eventually ratified in 2022. That is a convention based on realities rather than on abstract rights.
Domestic abuse persists and will continue to do so, but having worked in family law for a long time I want to emphasise some significant improvements: first, the changes in terminology that have already been referred to. The 2021 Act provides a wide and useful definition of domestic abuse, including psychological, emotional and economic abuse, and it is not confined to what happens in a home, if there is one. But the word “domestic” remains fundamental, emphasising the need to protect homes as places of security and safety, and not as places of dangerous misery.
The recognition of controlling or coercive behaviour has served to focus the attention of the courts and professionals on patterns of behaviour rather than individual incidents. There is now a much better understanding of the impact on victims, in terms of social and familial isolation and loss of self-esteem, particularly in households and relationships in which violence and abuse have become normalised.
However, many perpetrators of abuse, lacking empathy and insight, all too easily move on to other harmful relationships. The family courts see this time and again. Sadly, Sarah’s law and Clare’s law are seldom used by those who most need them.
There are positive indications, however. The police have become more responsive and better at recognising domestic abuse. Refuges remain vital in giving at least temporary safety and enabling women to move on. IDVAs are an invaluable addition to the practical support available; funding for them should be assured. Cafcass officers are now subject to a new Cafcass domestic abuse practice policy, based on hearing victims clearly and taking concerns seriously.
I do not wish to take any more time defending the role of the family courts, but we have to resolve conflicting claims of ulterior motives. There is now a very valuable Family Justice Council document giving welcome and important guidance, giving greater weight to domestic abuse allegations and to suggestions of potential alienation.
Lord Patten (Con)
My Lords, I take a pretty broad view of the phrase “domestic abuse”, for it includes not just men and women battering each other, using emotional abuse or battering children, but sometimes partners jointly abusing the elderly, the frail and confused men and women of some age. I have been interested in this for some while, and I can do no better than unashamedly borrow a phrase from a campaigning outfit called Hourglass: often, people of age are left out of the conversation on domestic abuse.
I hope that the Minister addresses it in his reply. If he cannot find time, understandably, to mention it in his wind-up speech, he may choose to write to us and place a letter in the Library of the House on what exactly the Government propose to do. A considerable number of elderly people have a pretty horrible time domestically.
How to reduce domestic violence is one of the great social challenges of the day; it is going to take time to resolve. The mention of the word “time” causes me to pause over just one word in the title of this excellent debate put forward by my noble friend, on which I congratulate her—“eliminate”. I wish that we could eliminate it, but it is never going to be an easy challenge when people have been violent with each other over generations.
Lastly, we need to take a broad view of how we deal with domestic violence. Of course, legislation, new orders and the panoply of political undertakings are very important, but education as a background is terribly important too. It is nothing like as important as stopping people being beaten up or abused, but I believe that social change is brought about by getting messages across, whether through the use of media or in schools. Schools cannot do everything, but it is very good for schools to address their attention right through to what I have learned to call the “manosphere” and messages being put across online through new mediums, which we have to use in subtle, non-specific and non-harassing ways. I am convinced that educational messages have a limited but very important part to play in the long term.
The Lord Bishop of St Albans
My Lords, I too thank the noble Baroness, Lady Chisholm of Owlpen, for securing this debate and pay tribute to her work in this House. This is such a fundamental, important area for us to address.
I commend the Government on their ambition to halve violence against women and girls in a decade. It demonstrates a commitment to tackling this scourge, and we must do all we can to take a stand against gender-based violence. The voices of men and boys are fundamental in this.
I too welcome the recent launch of the pilots of domestic abuse protection notices and domestic abuse protection orders, and hope they will prove effective in providing greater protection for victims and survivors. I note that implementation is the key issue here. Without proper awareness, monitoring and response to breaches of these orders, they will inevitably have just a limited impact.
Of course, as well as enforcement, there is an urgent need for prevention. Upstream prevention is much better than helping victims and survivors down stream. Although men can be victims, as we have noted, it is mainly women who suffer from this. So how can we tackle the misogynistic and sexist views that can lead to these horrific crimes? In particular, I wonder whether the Minister can be tempted to reflect a little on what can be done in our schools and education systems, as others have raised, as we address this issue.
I wonder if more can be done by His Majesty’s Government to work in co-operation with the voluntary sector. A couple of weeks ago, I was delighted to be invited to speak at an open meeting organised by the St Albans branch of the Soroptimists—“Orange the World” was its title. People from all around the community came together to address this and to raise its profile in local media. I also note the work undertaken by the Mothers’ Union. Its RISE UP campaign involves activism against domestic abuse and gender-based violence and goes on throughout the year, not just during the 16 Days of Activism campaign.
Could the Minister tell us whether the Government intend to publish a more detailed strategy of how they intend to reach their target of halving violence against women and girls in a decade and how they intend to measure that target?
Baroness Morris of Bolton (Con)
My Lords, it gives me the greatest pleasure to support my noble friend Lady Chisholm of Owlpen today. I thank her for her powerful opening speech and for giving us the chance to debate this most important and deeply concerning topic. My noble friend mentioned Her Majesty the Queen’s documentary on domestic violence, “Behind Closed Doors”, which was moving and compassionate but often uncomfortable and chilling viewing. It should make us all look for the best and most immediate ways to break this evil cycle.
In Bolton, we are blessed with a wonderful refuge, Fortalice, which opened its doors 47 years ago to women and children to keep them safe from domestic abuse and violence. Over the years, it has grown to offer not just a refuge but 22 services within the community, including a children and young people’s hub. It delivers programmes and early intervention aimed at breaking the cycle of abuse and helping children work through the trauma they have suffered.
Started by a group of friends, Fortalice is now led by two equally inspiring and determined women: the CEO, Gill Smallwood, and chair, Diane Hawkins, who is the Lord-Lieutenant of Greater Manchester. Under their leadership, and supported by a team of dedicated staff, Fortalice has gone from strength to strength. Gill has always believed that we need to look after victims at a local level. When she first arrived at Fortalice, 13 years ago, she saw that there was a huge gap in some working partnerships. She duly forged a partnership with the police, which meant victims were reached as early as possible because help was in the right place, at the right time. Through this essential early intervention programme, the police came to value its work, which was also educational, especially when dealing with an area where violence may not be immediately obvious and is often not taken as seriously as it should be.
Attempts to scale this up to a regional level lost that essential local element; when you lose that, victims too get lost. Local commissioning reduces trauma for the whole family, especially where children are involved, because local services understand the needs of their communities and can react in a timely way, especially with rising demand and complex needs.
Last year, the office of the Deputy Mayor of Greater Manchester asked Fortalice to run a local pilot partnership with the police, similar to the original programme. Built on highly trained volunteers drawn from all walks of life, including former police officers, teachers, counsellors, students and survivors of domestic violence, they go out on appointments with the police, meaning that once again the right people are in the right place, at the right time, with the right skills. They provide a lifeline of protection and support, and a rebuilding of self-esteem and trust, which domestic abuse in all its forms so cruelly erodes. We are rightly proud of all they do. I pay tribute to all who work in this distressing but vital area.
Baroness Jenkin of Kennington (Con)
My Lords, this is a story about how long it takes for good ideas to get on to the statute book before being finally implemented. In February 2010, Kit Malthouse, London’s then deputy mayor for policing, attended a conference and heard about the South Dakota 24/7 sobriety project, the aim of which is to reduce the recidivism of offenders who drive under the influence of alcohol or commit domestic violence when drunk. Between 25% and 50% of domestic violence incidents are linked to alcohol consumption. The project mandates offenders to a period of enforced alcohol abstinence. In the US, this is monitored by daily breathalyser tests paid for by the offenders. If they do not turn up or if they test positive, they are subject to flash incarceration for a day or two. Convinced that this model could help reduce violence in the night-time economy and domestic violence, Malthouse campaigned to conduct the first trial of 24/7 sobriety in Europe.
The alcohol abstinence monitoring requirement, or AAMR, was introduced in the LASPO Act 2012. I am proud to have played my part in persuading the then Justice Secretary, the noble Lord, Lord Clarke of Nottingham, to accept amendments which permit courts in England and Wales to impose a requirement for an offender to abstain from alcohol and be regularly tested to ensure compliance. Various AAMR pilots were conducted using sobriety bracelets, with a compliance rate of 94%.
In 2020, 10 years after Kit Malthouse began campaigning, an SI enabled a rollout of the AAMR, followed in 2022 by alcohol monitoring on licence. Here is how it works. The tag takes a sample of the wearer’s sweat every 30 minutes and provides a continuous record of whether the offender has been drinking. If the tag detects alcohol or is tampered with, an alert is sent to the Probation Service. If an offender breaks their alcohol ban, they can face a return to court or a prison sentence. Recent data shows a rapid rise in the use of alcohol monitoring post-release, but it is still very low. It would appear that prison governors are using it most. Does the Minister know why the Parole Board is not using this option at the same rate? Would the Minister agree that, if people are to be released early from prison, monitoring via tags might increase the number of candidates for early release?
I understand that a new agreement has been reached to supply more tags, but now that the effectiveness of the intervention has been proven, what is needed is more competition for better, cheaper devices. US data shows that keeping men sober in the community on these schemes helps reduce violence in the home. However, I believe this to be underresearched here. Will the Home Office agree to fund such research and explore how we can use this technology to keep even more women safe from abuse? It is a cheap option, enables safer early release, keeps men out of prison, and reduces much alcohol-fuelled abuse and probably death. Compulsory sobriety has the potential to be a game-changer. Will the Minister commit to looking into it further and giving it a very good push?
Lord Loomba (CB)
My Lords, I am grateful to the noble Baroness, Lady Chisholm, for initiating this vital debate. Domestic abuse devastates lives, families and communities. Despite increased awareness and legislative progress, the scale of the issue remains alarming. According to the Office for National Statistics, 2.4 million adults aged 16 to 74 in England and Wales experienced domestic abuse in the year ending March 2022. Domestic abuse not only inflicts a heavy emotional toll but imposes significant financial costs. The Home Office estimates the total cost to be £78 billion a year, which includes healthcare, lost economic output, and housing and support services. The human cost—the loss of safety, dignity and sometimes life itself—is incalculable.
While the Domestic Abuse Act 2021 marked significant progress, critical gaps in appropriate provision persist. Refuges—a lifeline for survivors—remain underfunded and oversubscribed. In 2022, Women’s Aid reported that as many as one in five women referred to refuges were turned away due to lack of space. This shortfall is even more acute for ethnic-minority survivors, who face additional barriers, including language challenges and cultural stigmas.
Another pressing issue is the rise of technology-facilitated abuse. Online harassment, the misuse of surveillance tools and digital manipulation have become common tactics for abusers. Research shows that 71% of domestic abuse victims have experienced some form of online abuse, and we are struggling to address this evolving threat.
It is also vital to think of children in these situations. Exposure to domestic abuse affects their emotional and psychological well-being and can result in long-term harm. Adequate funding for services supporting child survivors in child and family social care is crucial to breaking this cycle.
In light of these challenges, I ask the Government to address two questions of particular concern. First, what plans do they have to ensure that there is sustained and adequate funding for specialist domestic abuse services? Secondly, how do they intend to address the rise of technology-facilitated abuse, ensuring both victim protection and accountability for perpetrators in the digital age?
Baroness Sugg (Con)
My Lords, I thank my noble friend for introducing this debate. The Domestic Abuse Act 2021 was an important step forward but, as my noble friend Lady May said, it must be fully implemented as soon as possible and more must be done to eliminate all forms of domestic abuse.
Considering sexual and reproductive coercion first, pregnancy is widely recognised as one of the most dangerous times for women with abusive partners. Around 30% of domestic abuse begins during pregnancy, while 40% to 60% of women experiencing domestic abuse are abused during their pregnancy. In abusive relationships, perpetrators often seek to control every aspect of their partner’s life, including their reproductive choices. We have seen abusers coercing their partners into pregnancy by destroying birth control methods and forcing sexual activity without consent.
Women can be forced into carrying a pregnancy to term against their will, through threats, physical violence or emotional manipulation, with forced or coerced pregnancy being more common than forced or coerced abortion. That can be further impacted by mental health issues, isolation, financial control and fear of the retaliation that they can experience. In his response, I hope that the Minister can outline what steps the Government are taking to ensure that reproductive healthcare services are adequately equipped to recognise and support individuals experiencing domestic abuse.
Turning to honour-based abuse, campaign groups are calling for a statutory definition of honour-based abuse, including Karma Nirvana through its Push4Change campaign, in memory of Fawziyah Javed and the countless other women who have been killed through honour-based abuse. Introducing a statutory definition would provide much-needed clarity for victims, professionals and legal systems. It would help ensure that the abuse is properly recognised and responded to, and that this form of abuse is recognised for what it is: a form of gendered violence that needs to be eradicated. Can the Minister say whether the Government will support a statutory definition?
We are tragically seeing an increasing rate at which women are dying as a consequence of domestic abuse. Domestic homicide reviews should play a crucial role in understanding the circumstances surrounding domestic homicides and preventing future deaths. Organisations have raised concerns about the number of repeated recommendations emerging from DHRs, which show little systemic change. There are concerns about the lack of accountability for recommendations, the inconsistent quality of reviews across different regions and the insufficient focus on the victim’s experience. Can the Minister say what steps the Government are taking to ensure that DHRs lead to meaningful, consistent improvements in response to domestic abuse? The process of learning lessons from past tragedies must be more effective and impactful.
Lord Russell of Liverpool (CB)
My Lords, I too pay tribute to the noble Baroness, Lady Chisholm, and to Her Majesty the Queen; I saw the documentary and thought her unforced, natural empathy had huge power.
I applaud the Government for their commitment and focus to reduce violence against women and girls, and I commend them particularly for the appointments of Jess Phillips and Alex Davies-Jones. As a head-hunter for 31 years, I could never understand why previous Conservative Governments did not immediately put the noble Baroness, Lady Barran, into a position to deal with domestic abuse, on the basis that she was far better qualified than anybody else in that Administration. However, the Conservative Government did many things that I did not fully understand.
I pay tribute to the Domestic Abuse Commissioner, Nicole Jacobs, and her team for all they do. What a legacy this Government have inherited. Nicole Jacobs’s six priorities for the Government encompass: domestic abuse service provision and funding; the policing and criminal justice system; children and young people, and the trauma that domestic abuse can create; family courts; migrant survivors; and domestic homicide and suicide.
Turning briefly to domestic abuse services and funding, her submission to the Autumn Budget and spending review has some significant requests in it, including £303.8 million for community-based DA support, of which £187.8 million should be ring-fenced to ensure that it delivers what is planned.
I am particularly concerned about how we tackle the policing and criminal justice challenges, with only 6% of domestic abuse crimes reported to police resulting in a charge and even fewer resulting in a conviction. Multiagency and cross-geography co-ordination and co-operation are simply not working. With 43 police forces and police and crime commissioners, it is “Let a thousand flowers bloom” and priorities are all over the place. The police force data quality is inconsistent and our ability to measure the effectiveness of measures to reduce domestic abuse is severely handicapped by systemic shortcomings—a point made by the noble Baroness, Lady Gale.
The Minister may remember the interchanges we had last week about the new initiatives on stalking and independent stalking advocates. Can he commit to ensuring that this strategy is truly cross-governmental? It needs to bring in health, education, welfare, communities and local government. Can he use his best efforts to ensure that we have far more effective and focused metrics to measure success and, equally helpfully, to measure failure?
Baroness Laing of Elderslie (Con)
My Lords, it is customary to thank the noble Baroness who has secured a debate for having done so, but in this case I—and, I believe, the whole of your Lordships’ House—genuinely thank the noble Baroness, Lady Chisholm, for having secured the debate today.
Surely the problem that we are facing here is not that Governments, for the last two decades, have ignored domestic abuse, and it is not that the police, the courts or Cafcass have ignored it; it is that all the efforts that have been made have not improved the situation, because what we really need is a change in attitude in society. As the noble Baroness, Lady May, rightly said earlier—I commend her for all the work that she did on this subject, particularly when she was Home Secretary—getting employers involved is terribly important.
We are all awfully polite in Britain. We say, “Oh, there might be something wrong, but it’s none of my business”. That is the change of attitude that we need. We need to have a change of society’s attitude so that we say, “I recognise that this person”—usually a woman, but sometimes a man—“is in some kind of difficulty”. So rather than saying, “It’s none of my business”, let us all see what we can do to improve matters.
We have come a long way in getting the police to recognise how important this hidden crime is, but it is still terribly difficult, especially in cases of coercive control, which is a very hidden crime. Where there is violent behaviour, there is often evidence—bruises, illness and other obvious problems—but, with coercive control, none of those is present: and certainly not if everyone turns their back and says, “It is none of my business”. Because it is all of our business and I only wish that the media would report this debate, and all the excellent points that have been made in it, in the way they take up columns in the newspapers and time on news bulletins talking about the trivia of celebrities and their relationships. Let us look at the relationships of real people throughout this country who need the help of the whole of society.
I ask the Minister: will the Government consider the definition of domestic abuse, which includes the age limit of 16? We have all been shocked by what happened to Sara Sharif. Because she was under 16, it does not mean that it was not domestic abuse.
Baroness Newlove (Con)
My Lords, I thank my noble friend Lady Chisholm for this debate. It saddens me, though, that we only have three minutes to talk about it. If it was to do with EU law, we would have three days. I think that shows you. Are we really serious about tackling domestic abuse? I am going to keep mine short. I have lots of speechwriting from my team, but I think this should be a debate about the victims and the survivors.
I have met many, both in my role as Victims’ Commissioner and outside the role, and the one thing that everybody has said to me is that they do not want to go to court. They do not want to go through these processes that we talk about here today. They want somebody to listen to them. They want them to understand what they are going through. They want them to help them to get out of a horrible, chronic relationship. And they want to protect their children. We have wonderful organisations that work tirelessly to help these victims. They are bursting at the seams because, when they do go to court, we have court backlogs, as we are noting, and it could be years before they get anywhere.
The one thing that we cannot see is coercive controlling. Even though we send perpetrators to prison, that coercive controlling still goes on while they are in prison. We need to tackle that with better training and understanding and looking at it like a chronic, invisible illness—which, as I stand here today, I have, but you would not think so because I do not have a broken arm or leg. We need, as a society, to look at people, and the default button should not be, “Well, they go back”. They go back because they need to put a roof over their head for their children. They go back because they have no control of their finances. They go back because they are worn down by the very person who says they love them. And they go back because they know the consequences of what will happen.
In this House and in the other place, we talk about legislation. This is for the professionals and this is where we can safeguard—and I hope that agencies will get this into perspective. But, more importantly, we are missing a trick. This is not about legislation; this is about understanding a societal problem. It is understanding the language that we talk about and it is understanding that, when a victim goes to report domestic abuse or any crime, this is not the first time that they are suffering at the hands of somebody who will absolutely go on to brutally murder them.
I ask the Minister not to keep using the two words “lessons learned”. It is an insult to the victim and to the family and, more importantly, as we have just seen in the young girl who has brutally lost her life, there is going to be yet another inquiry—another one that sits on the shelf—when in fact there needs to be accountability, because we have enough legislation that should have protected that child. As a whole, we need to do better, quicker, to protect other young lives.
Baroness Brinton (LD)
My Lords, I also congratulate the noble Baroness, Lady Chisholm, on securing this important debate and all the other speakers who have so movingly talked about the scourge of domestic abuse and why it must be eliminated. She was right to say that it can affect anyone, but much of it remains invisible. And the noble Baroness, Lady Laing, was right to say that there is still much to be done. It was good to hear from our own Victims’ Commissioner, the noble Baroness, Lady Newlove, who talked about the experience of women and girls who are at the forefront of our minds today as we have this debate. I thank the many organisations who have sent us briefings and all the amazing work that they do with women struggling to flee from domestic abuse.
One in four women experiences domestic abuse. Women’s Aid is right to describe this as an epidemic. Women also experience higher rates of repeated victimisation and are much more likely to be seriously hurt or killed than male victims of DA. At least one woman a week is killed by a current or former partner. As the noble Baroness, Lady Hazarika, said, this is a public emergency, yet four in five British people do not believe that the scale of domestic abuse is greater than car accidents or house fires. That is to do with the way that we as society, and our press and media, handle it. So, can the Minister say what plans the Government have to help society to listen and understand that DA is just not acceptable, and to teach people, all of us, to help intervene if we have concerns? On a practical level, can the Minister guarantee that the police and crime commissioners’ budget for victim support will be protected?
It was good that the noble Lord, Lord Meston, outlined some of the positive changes that we have seen in the family court system and the effect on children. The support is vital for victims, as my noble friend Lady Doocey outlined. Too many are persuaded or bullied into withdrawing their criminal cases. The Domestic Abuse Commissioner has outlined three-planet model of types of victims. There is the domestic violence planet, where domestic abuse is considered a crime. There is the child protection planet, where victims and survivors are expected to remove themselves and the children from the perpetrator. And then there is the child contact planet, where there are lots of negotiations between all three. She says that most of the rest of the systems in society do not understand how all of those conflict to make life for victims very difficult.
The excellent Ministry of Justice report some years ago on assessing the risk of harm to children and parents in private law children cases, the Harm Panel report, has really started to make some changes, and it is good that that has finally been recognised. As the noble Baronesses, Lady Barran and Lady Hazarika, also said, Sara Sharif’s death was shocking, not just for the violence that was inflicted on her but once again for the continued failures of all those in important roles to keep our children safe. “Lessons learned” is no longer good enough; we really need to make sure that things change. Along with the noble Lord, Lord Russell, I want to pay great credit to the Domestic Abuse Commissioner, who has really begun to change the tone of the debate that we have.
Other speakers have spoken about the effect on young people aged 16 and under. We definitely need a law change. The law ignores the fact that Holly Newton and other teens do have relationships. The Children’s Commissioner noted that only 1% of under-18s access advocacy services because they are not targeted at that age group. It is not the young people’s fault; they are just not seeing it. The noble Lord, Lord Patten, outlined the shocking effect on older people of abuse, and I absolutely agree with him as well. When you add dementia into it, it becomes a very difficult issue to manage. The noble Baroness, Lady Gale, spoke movingly about the special problems of migrant women who are victims of domestic abuse, and she is right. We have to make sure that services for the particularly vulnerable in our society who are also victims of domestic abuse are supported.
The noble Baroness, Lady May, talked about the impact on the economy, but there are other financial impacts too. The Price of Safety report found that it could cost a woman up to £50,000 to leave her abuser. That is just the direct cost of fleeing and rebuilding a new life. Even women who have state support and benefits can find themselves facing a deficit of up to £10,000 and nearly 1 million women in the UK cannot escape dangerous partners because of economic abuse. The noble Baroness, Lady Laing, was right to say it is even less visible than DA. And the noble Baroness, Lady Gohir, rightly outlined spiritual abuse, which is a particularly unpalatable form of coercive control. The noble Baroness, Lady Sugg, talked about honour-based abuse. That is such an appalling misnomer that almost gives credibility to the perpetrators. We need to find another way of discussing it.
The elimination of domestic abuse needs a whole-system response. As the noble Lord, Lord Loomba, outlined, health and domestic abuse are inextricably linked. Others have talked about pregnancy, but there are other health issues as well. The noble Baroness, Lady Jenkin, spoke about the sobriety tag scheme started by Kit Malthouse and her success in getting this into legislation. There is another reason why it is important. LSE research shows that domestic abuse rises after football matches when people have more opportunity to drink alcohol. Perhaps for repeat offenders in that area there might be short-term tag wearing that would help.
The right reverend Prelate the Bishop of St Albans talked about the important role of civic society. He specifically mentioned the Mothers’ Union, but there are many other groups as well. There is a lot of work going on behind the scenes. We need to make it much more visible, so that everyone recognises that there is strong and good work continuing. The noble Baroness, Lady Morris, talked about the importance of initiatives and pilots, and oh my goodness, she is right. How can these initiatives be scaled up and turned into something that will work and be financially supported at the right level across the country?
Above all, we absolutely must have a complete change in society. Will the Government ensure that there are changes and perhaps even a bigger campaign to make us in society understand that?
I have one last question for the Minister. Hardly any of the Victims and Prisoners Act has been commenced. Can he tell us when every part that relates to victims will be fully commenced, including the revised victims’ code?
Lord Davies of Gower (Con)
My Lords, in addressing this extremely important topic I sincerely thank my noble friend Lady Chisholm of Owlpen for securing this debate, and thank all noble Lords who have made enormously important contributions.
Let me be clear: domestic abuse is a scourge on our society, and we must take all the steps we can to eliminate it. I am sure that all noble Lords will agree that victims and survivors of these horrific crimes deserve the strongest assurances that His Majesty’s Government can give that they are doing all that they can to eliminate domestic abuse.
My noble friend referred to Her Majesty the Queen’s documentary “Behind Closed Doors”, which tells the harrowing stories of women subjected to domestic abuse, with many victims bravely speaking out and Her Majesty the Queen doing an impressive service to bring this to the country’s attention. I do not think any of us would fail to be touched by the stories of the victims.
As the Government over the last 14 years, the Conservatives took a number of steps to seek to eliminate domestic abuse and, as referred to by a number of noble Lords, to reduce violence against women and girls more broadly. However, as always, it is important to be honest: there is certainly more that we could have done when in power to address this issue. We welcome the Minister for Safeguarding and Violence against Women and Girls introducing the new pilot domestic abuse protection order. As the noble Lord, Lord Patten, mentioned, we should not forget violence towards senior citizens, and in many cases it is hidden.
Last year, there were 2.4 million reported victims of domestic abuse, which is a tragic statistic. The numbers seem to be on the rise, and it is certainly the case that my party looks on these statistics with great sadness and anger, as I am sure do all noble Lords.
We tried to tackle the problem of domestic abuse in our 14 years in power but it is not easy. First, we elevated violence against women and girls to a crime type that policing leaders must treat as a national threat, ensuring that victims can always access professional support. We committed a total of over £230 million to our Tackling Domestic Abuse Plan from 2022 to 2025, including quadrupling funding for victim and witness support services by 2024-25, which complemented our £300 million investment in our 2021 tackling VAWG strategy as part of our goal to drive down the prevalence of domestic abuse.
Secondly, we toughened sentences for rapists and stalkers, making sure that they feel the full force of the law. We doubled the maximum sentence for stalkers from five to 10 years, with the average sentence length for adult rape now nine years and eight months, up from six and a half years in 2010. This increase of 46% keeps those who devastate communities behind bars for longer.
Thirdly, we launched the end-to-end rape review, delivering victim-centred system change for victims of rape in the long term. We met ambitious targets set out in the review ahead of schedule to more than double the number of adult rape cases reaching court by the end of the last Parliament, and to return volumes of cases being referred to the police to at least 2016 levels, ensuring that justice is done for the most horrific crimes.
Fourthly, we created new offences of coercive control, strengthening protections for victims. We introduced the offence of coercive or controlling behaviour to recognise behaviour that stops short of serious physical violence but which amounts to extreme psychological and emotional abuse, helping bring perpetrators to justice.
Finally, I should mention that I well remember my own experience as a police officer in the 1980s and the 1990s, when it was quite difficult at times to bring assailants to trial at Crown Court, as in many cases the victim was unwilling to proceed with the matter either due to threats or other reasons and was unprepared to give evidence. It is a real challenge—a great challenge to the police and to the criminal justice system.
One of the things that we did get right, though, was that we introduced measures to make it easier for victims to give evidence in court, ensuring that they can give a full account of the offending without having to face defendants in person. Rape victims are now able to pre-record their evidence, ensuring that they can give a full account of the offending without having to face defendants in court. I suggest that this is an enormous step forward, and I am sure the House agrees. All these measures are aimed at supporting victims and survivors of violence against women and girls, and clamping down hard on those who commit these heinous crimes.
I am sure that, on this occasion, the Minister will welcome the work done by the previous Government on this, as it is a matter above party politics. Can he perhaps confirm, first, whether the Government will continue to work with our Benches on key issues to prevent violence against women and girls? Secondly, as the previous Government had committed £230 million to the Tackling Domestic Abuse Plan from 2022 to 2025, including quadrupling funding for victim and witness support services by 2024-25, can the Minister perhaps confirm whether this Government will honour that commitment?
As we come up to the Christmas period—the noble Baroness, Lady Chisholm, is absolutely right—we must bear in mind that Christmas is not a happy time for everybody in our country. It is a fact that it is a period when cases of domestic abuse rise. I hope the Minister takes these questions in good nature, and I wish to offer my support to help him and his ministerial team so that we can present a very unified voice on this issue.
The Minister of State, Home Office (Lord Hanson of Flint) (Lab)
My Lords, I begin by congratulating the noble Baroness, Lady Chisholm, on bringing this debate before the House. As has been seen from the contributions today, there is significant interest and a number of very strong points have been put which the Government will consider. I reassure the noble Lord, Lord Davies, that we welcome the work done by previous Governments and welcome any support that he, and indeed all Members of this House, can give to the Government to tackle this issue in the longer term.
The important point was made that this takes place at the end of a 16-day period when we have had a very high focus on domestic violence prior to Christmas. It is also important that this House recognises both the work and endorsement of Her Majesty the Queen and the documentary that she has made, and senses the wish of this House to raise the issue and to tackle it with a societal approach. That is a very significant contribution which I very much welcome.
The contributions that we have had all raised a number of different issues. I will try to resolve all those and respond to them in due course; if I cannot, I will write to noble Members about those issues in the meantime.
I want to thank my right honourable friend the Home Secretary, the Minister Jess Phillips and the Minister Alex Davies-Jones for their commitment in developing the plans that I will be outlining now on behalf of the Government, because they are the drivers behind these measures and I want them to be recognised.
In our manifesto, the Government gave a number of key commitments which we will be judged by but which I hope will have the endorsement of the House. The noble Lord, Lord Russell of Liverpool, mentioned the scale of the task, and the metrics of measuring it are extremely important. However, the measures that we have put in place of halving violence against women and girls over 10 years, the specialist workers in 999 control rooms that we committed to in the manifesto, the specialist rape investigation units for England and Wales police forces, the police and other interventions to target repeat offenders, and the specialist support in courts to fast-track and support the early resolution of cases are all important, and they are part of the key manifesto commitments that I will refer to now in more detail. Those are important because, as noble Lords mentioned, in the year to March 2024, over one in four women reported experiencing domestic abuse, as well as one in seven men—to pick up the point that the noble Baroness, Lady Meacher, made in an intervention.
The point that the noble Lord, Lord Patten, mentioned about elder abuse is extremely important. He and the noble Baroness, Lady Chisholm, both mentioned that. Whatever we say about the level of abuse, abuse with older people may be more hidden, and there may be more confusion and more difficulties, especially in seeking help. We should recognise that, and the Government will certainly reflect on it. For many of the individuals concerned, whatever the level of abuse is, it is a daily occurrence and, tragically, as has been mentioned in a number of contributions, the home is not a safe place, nor does the abuse end when the perpetrator leaves the home. The scale, and the stories mentioned by Members of the House today, should shock us all and lead us to what we need to do, which is to raise awareness and policy issues to tackle this around the country.
I was particularly struck that the briefings before the discussions today did not mention the economic impact in the scale of this problem. I was very interested to learn from the former Prime Minister the noble Baroness, Lady May, and from the noble Lord, Lord Loomba, of the recognition of that economic impact. That is an important point to take away from today.
Quite clearly there is a view from the House that, whoever is in government, we make sure to go further and faster. We are still, sadly, nowhere near where we need to be. I give the commitment that the Government I represent here today are committed to changing that. They require the support of Members who have spoken and of the voluntary agencies mentioned by the noble Baroness, Lady Morris, and others to ensure that we achieve the mission of halving violence against women and girls in the decade ahead.
There are a number of points I want to mention. The question of individuals who have been offenders and reoffend is extremely important. The noble Baroness, Lady Barran; the noble Baroness, Lady Jenkin, in relation to alcohol abuse; and the noble Baroness, Lady Newlove, in relation to reoffending, all mentioned that as a key issue. This is a Ministry of Justice, Home Office and voluntary sector issue, but we have to look at what interventions we can make to target the most prolific and repeat offenders. It is a particularly important issue.
The police clearly have a vital role to play in this. The right reverend Prelate the Bishop of St Albans mentioned that, and I endorse the comments that he made. We have just introduced the domestic abuse protection orders—Raneem’s law—in a pilot form. The noble Baroness, Lady May, mentioned that and asked specifically about the full provisions of the Domestic Abuse Act 2021 being implemented. I hope I can give her an assurance that the domestic abuse protection orders are the first step on that, and that the Ministry of Justice, which is also party to the Act, is considering full implementation of its Section 62 very shortly. Again, I reach out to her to say that there is, I hope, agreement that this will be done in due course at an early stage.
The noble Baroness, Lady May, also mentioned the way in which employers treat and look at individuals who are subject to domestic violence, who may be hidden, who may come into work and may have challenges and have their performance in their work impacted by the situation at home. It is an extremely important point. Let me say to her that it is not just in the private sector that there are employers: the biggest employer in this country is the UK Government. I hope I can again reassure her that the Government are working closely with organisations such as the Employers’ Initiative on Domestic Abuse, and that the Government will be, or are soon to be, signing up as members of that alliance. Again, that is a really strong point for the Government as a whole.
Baroness Barran (Con)
A key employer in this is, of course, the police. I am sure the Minister is aware of this. I have never done a day’s training with police officers where at least two or three have not come forward afterwards to disclose that they are victims of domestic abuse and that their partner works in the force. The quickest way to improve our response on the doorstep would be to make sure that the police treat victims of abuse within the force in the same way that we expect them to behave on the doorstep.
Lord Hanson of Flint (Lab)
I am grateful for that intervention. I give the noble Baroness, Lady Barran, the assurance that I will take that back and draw it to the attention of Diana Johnson, the Police Minister, directly, so that she is aware of the issue. The general point here is that Government, as well as regulating, can lead.
I think that the points the noble Baroness, Lady May, made are sound and good. Those are not things I have always said of her, but I mean it in the nicest possible way—we have had several discussions over many years on Home Office responsibilities. I agree with her on this, and I hope that we can work together on those points.
There was also a range of discussion about modern technology. I think it has a role to play. We want to work with the police to ensure that we improve that information, which also relates to the point that the noble Baroness, Lady Barran, just made. We need data-driven tools and algorithms to track and target high-harm offenders. That again goes to the points that the noble Lord, Lord Russell, mentioned earlier. We also need to look at the issue raised by a number of Members of the House on prevention and education. The noble Baroness, Lady Chisholm, herself, the right reverend Prelate the Bishop of St Albans and a number of other Members mentioned how we improve standards and teach children, male and female—I suggest, in this context, particularly male children—to be respectful, have healthy relationships and understand the meaning of consent, and ensure that they grow up to be adults who, wherever we can, we put prior activity in for to prevent poor behaviour downstream in due course
Throughout all this, the needs of victims are central. My noble friend Lady Hazarika was very focused on victims; the noble Baroness, Lady Newlove, as the Victims’ Commissioner, self-evidently has a focus on victims; the noble Baroness, Lady Morris of Bolton, also put at the heart of things how the support of the voluntary sector can help victims as a whole. We know that access to housing, particularly when people cannot return to housing, is important. That is a real priority for government, and I am pleased that this Government have announced a funding increase of £30 million to a total investment of £160 million in the domestic abuse safe accommodation grant of 2025-26 to ensure that local councils can provide front-line accommodation services to help support victims in their workplace.
Housing is important, but victims also need holistic, wraparound services. That involves the National Health Service and schools understanding domestic abuse and victims getting appropriate support. We need to focus on the importance of specialist services, with tailored support for victims and survivors in due course. That all takes resource. The noble Baronesses, Lady Gohir and Lady Brinton, and the noble Lord, Lord Loomba, all looked at the question of resources. There is a spending reviewing process, and there will be a spending review for the three years post 2026-27. The Government have to make choices, and these are representations that will be made. A police settlement will be announced next week, which covers a number of the areas funded. We will have to reflect on that. I know again, from representations from the noble Baroness, Lady Doocey, His Majesty’s Opposition Front Bench and others, that resources will be key. That will have to play out in its own way over the next few weeks as we go through the spending review, the police settlement and others.
I turn to the contribution by the noble Baroness, Lady Sugg. She made three very important points. First, I think that the definition of domestic abuse needs to recognise coercive behaviour and the question of reproductive coercive behaviour. I hope I can reassure her that the current definition is designed to do that. We can discuss whether it does in practice, but that is what it is designed to do. Secondly, she mentioned very clearly the question of honour-based violence. I, and my honourable friends the Ministers Jess Phillips and Alex Davies-Jones, have heard loud and clear that there needs to be a robust framework on safeguards for victims. The Government are considering this again. Sometimes I have to stand at this Dispatch Box with a hint but nothing definitive, and I hope that the noble Baroness can understand where we are with that at the moment. She also mentioned domestic homicide. There is a real issue there. The Government are committed to looking at domestic homicide review processes to see whether we can improve them.
The Right Reverend Prelate the Bishop of Newcastle and the noble Baroness, Lady Laing, raised the definition of domestic abuse relating to age. Following the terrible case of Holly Newton, which was mentioned by other Members, our thoughts have to be with the family but, ultimately, we have to do something about that. Therefore, it is important that we look at how we record violent incidents and how the victims are supported, whether they are under 16 or over 16. The police must have information to protect victims and take action against the perpetrators. This is something that we can reflect on, and I would welcome contributions from Members on how we can best do that.
My noble friend Lady Gale and the noble Lord, Lord Meston, mentioned Article 59 of the Istanbul convention. This is an issue on which my noble friend Lady Gale has pressed me previously, and I know she will again. The system of settlements under domestic abuse provisions is currently only for those who have an expectation of being able to settle here when they enter the UK. But our policy review is now looking at the very issues that she has raised. I hate to ask for patience on these matters because I know how important this is and how impatient my noble friend is, but if she can have some patience, we will review this as part of the policy review and look at those issues in due course. The UK ratified the Istanbul convention in 2022 and the convention’s monitors visited the UK in January this year. We look forward to receiving their report and then, I hope, the UK’s compliance with the review in due course.
Colleagues also mentioned the tragic murder of Sara Sharif. I am limited in what I can say, for the simple reason that a conviction has happened but the sentencing has not yet happened. Therefore, I hope noble Lords will understand that while we know who is guilty, we do not yet know what the penalty is and any statement from this Dispatch Box would be interpreted as interfering in that judicial process. I am in a difficult position. My noble friend Lady Hazarika and the noble Baronesses, Lady Newlove and Lady Brinton, raised that issue. Post sentencing, the Government will reflect again on whether there are areas of required action. We need answers. An independent panel will look at those issues in due course. I hope that we can settle that for today, difficult though it is, and in due course reflect on the issues that are ahead of us.
I hope I have covered most of the points that colleagues have raised. To conclude, this Government have a clear agenda to build—
Baroness Gohir (CB)
My Lords, I made three very important points on spiritual abuse, transnational abandonment and the higher domestic homicide rates among ethnic-minority women, which have not been addressed.
Lord Hanson of Flint (Lab)
I appreciate the noble Baroness raising those issues again. Can I write to her on those important points? I noted in the steam of the debate all the points that were mentioned. I am trying to respond to as many as I can. I took from her contribution the need for funding, which I have noted. I will reflect on what she said and her subsequent intervention, and will respond in due course. The transnational issue, of individuals being abandoned in a different country, is extremely important. I do not have a policy solution in front of me, but I will take it back to discuss with my colleague, Jess Phillips. I hope that will assist the noble Baroness.
In conclusion, the Government have a very strong agenda which I hope will build on the all-party work and the work done by the previous Government. There is a need to set a target, which we have done, of halving the incidence of violence against women and girls over a 10-year period. We have a first five-year stab at that in the course of this Parliament. To do that, we have tried to look at how we can improve measures in control rooms, improve measures on perpetrators, improve support for victims, improve the understanding and speed of court cases, and look at how we can settle on resource to ensure that some implications of previous legislation can be implemented. We will be judged on that.
I thank all noble Lords for their contributions today. A lot of good points have been made. As well as reflecting on the bits that I have responsibility for, I will make sure that the Home Secretary and the Justice Secretary, the Lord Chancellor, reflect on the bits that they have responsibility for. On behalf of the Government, I thank the Members who have spoken. In slower time, taking the point that the noble Baroness has just made, I will look through Hansard over the next 24 hours. If there are points that I need to respond to further, I will do so.
Baroness Chisholm of Owlpen (Non-Afl)
I thank your Lordships for taking part in this debate. It shows this Chamber at its best when we come together like this. As the noble Baroness, Lady Newlove, said, there are marvellous organisations out there helping victims—but, as she also said, there are still victims who feel they have to go back to the abusive household that they have tried to leave. I hope that in some small way us speaking up today can help, but as the noble Baroness, Lady Brinton, said, we need a whole-systems approach.
I thank the Minister for his empathy in this debate. Now I am getting emotional; I knew this would happen. I absolutely swore to myself that I would not. I thank him for his empathy and for all that he is hoping to do on this hideous, awful crime. We can probably never eliminate it, but we can certainly all come together to make sure that everybody has the support they need.