Lasting Power of Attorney

Tuesday 28th October 2025 Westminster Hall

15:59

[Valerie Vaz (in the Chair)]

I remind Members that they may make a speech only with prior permission from the Member in charge of the debate and the Minister. As is the convention for a 30-minute debate, there will not be an opportunity for the Member in charge to wind up.

[Fabian Hamilton (Leeds North East) (Lab)]

I beg to move,

That this House has considered lasting power of attorney.

Thank you for that introduction, Ms Vaz; it is a pleasure to speak this afternoon under your chairship. This debate has been secured at an extremely important time, as lasting powers of attorney continue to be granted across the country. Although it is clear that the vast majority of attorneys act in the best interests of the donor, there is still considerable abuse among the very small minority who do not.

Since the campaign, in which I have been involved, to end the abuse of lasting powers of attorney began, I have received hundreds of testimonies from across the country in respect of vulnerable people who have had their funds stolen or used for purposes not in the interests of the donor. Most of the campaign’s focus has been on the abilities of the Office of the Public Guardian and the implementation of its powers, but it is important to look at the root cause of the abuses and why they are able to occur in the first place.

The abuse often begins following interactions with banks. There is no getting away from the fact that the digitisation of lasting powers of attorney processes has opened the door to abuse from a very small minority of unscrupulous individuals who have taken advantage of the ease with which an attorney can gain access to a donor’s bank accounts. The lack of legislation and duties placed on banks has resulted in an uneven implementation of safeguarding when it comes to lasting powers of attorney. That is why our campaign has called for the implementation of Government-regulated safeguarding procedures for all banks in how they deal with LPAs and the accounts of donors.

[Jim Shannon (Strangford) (DUP)]

I commend the hon. Gentleman for all his hard work in the House. I do not think anybody in this House is not impressed by his dedication, interests and commitment, and this debate is another example.

In Northern Ireland, the enduring power of attorney is a legal document that lets us choose someone to make decisions about our property and financial affairs if we lose mental capacity. Unlike in England and Wales, there is no equivalent of the lasting power of attorney for health and welfare in Northern Ireland. Instead, a separate process is available, through the Royal Courts of Justice, to appoint a controller if no EPA exists. Does the hon. Gentleman agree that the processes both here and back home must be streamlined and accessible, while still ensuring that safeguards are in place to protect people from the abuse of power?

[Fabian Hamilton]

The hon. Member will hear later in my speech how I intend to address the issue of safeguarding, which is one of the most important parts of the process. Let us be clear that, as I said, the vast majority of lasting powers of attorney have no difficulty, problems or issues whatsoever. We need to concentrate our efforts on the small minority who cause the grief, in respect of whom people need to be safeguarded from abuse.

The Government-regulated safeguarding procedures that I mentioned, in respect of all banks in dealing with LPAs and the accounts of donors, would include a requirement to contact the donor or a GP before an LPA is activated, and the monitoring of spending prior to and after its activation.

I am afraid abuse is rife in a small minority of cases, and the recorded increases do not scratch the surface, given that most cases are undetected, not thoroughly investigated and not reported as often as they should be. The Office of the Public Guardian’s annual report made that clear last year. For example, there has been a 6.5% increase in the number of concerns about abuse raised with the OPG, but a slight decrease, from 34.5% to 33.9%, in the proportion leading to a full investigation. That change might seem small, but a lot of people are affected, and every individual concerned has a family, relatives and friends who are deeply concerned.

Two weeks ago, alongside UK Finance, I hosted a roundtable for banks that administer lasting powers of attorney. They verified that the figures cited have been seen in their work on vulnerability, with the OPG admitting that approximately 65% of potential financial abuses are being disregarded simply because the donor is deemed to have capacity. Let us be clear: someone may have capacity, but that does not mean that they cannot be coerced or financially abused.

[Alex Easton (North Down) (Ind)]

In the light of the projection that 1.4 million people will be living with dementia in the UK in 2040, does the hon. Member agree that we need sufficient safeguards to protect vulnerable people?

[Fabian Hamilton]

With the increase in dementia and with Alzheimer’s projected to rise incrementally, the hon. Gentleman is right that safeguarding needs to be far tighter. I will come on to say what I think that would involve.

At our meeting, several banks highlighted clear failings in safeguarding procedures and investigations by the Office of the Public Guardian. Given that the OPG will not investigate any case in which the donor is deemed to have capacity, and that it has no powers to access the financial records of attorneys, investigations are toothless at best. The banks then face a back and forth with the OPG, as both urge the other to investigate what they claim to be a “civil matter”. Banks regularly ask the OPG whether they should act on an account that is under investigation, but are told it is up to them to decide whether to do so. That begs the question: “What is the purpose of the OPG and why does it lack the powers to act?”

One of the banks raised the example of a single individual to whom tens of LPAs were registered, but UK Finance was not aware, so no investigations took place until concerns were raised and a bank conducted a vulnerability check on the donor, by which time it was too late and the individual had already gathered the funds of several people. That case is sadly not an isolated incident.

[Chris Bloore (Redditch) (Lab)]

I thank my hon. Friend for his dedicated work on this subject. Does he agree that, given that over 6 million people in the UK hold lasting power of attorney agreements, mandatory safeguarding procedures for all Government staff who handle LPAs, alongside clear guidance for banks, is essential to protect vulnerable people and communities such as mine in Redditch?

[Fabian Hamilton]

My hon. Friend is absolutely right, and that is what the campaign has been arguing for since it began. The publicity given to the cases that I raised on the Floor of the House last November, when I introduced my ten-minute rule Bill, led to a large number of people bringing forward cases from up and down the country, often through their local MPs, asking to be added to the list of abuses. In total, the number of abuses may not amount to more than a fraction of a percentage of the total number of LPAs granted; nevertheless, my hon. Friend mentioned 6 million people, and I believe it is more like 8 million, and a small percentage of 8 million is still an enormous number of people.

The issues go much further. Whistleblowers at the OPG have told me that no potential attorney is ever vetted, and that it is extremely easy to walk away with a signed document stating that someone is the attorney. Let me repeat that: no attorney is ever vetted. That is rather worrying. There is evidence of abusers producing fake religious documents to help them to claim they are married to people who are decades older than they are and who clearly lack capacity. Technically, that is still not against the law so, despite it being utterly immoral, there is very little that the OPG can do about it.

As I have said, hundreds of cases of potential abuse have been raised with me since I introduced the Powers of Attorney Bill to Parliament last November. I will highlight some more of them now, in addition to the cases I raised last year. Azhar Hayat lost his life savings as a donor through the granting of a lasting power of attorney. An alleged investment of £126,000 was transferred to his attorney, with most of the funds going directly into a company of which the attorney was the sole director. Mr Hayat’s funds were then converted into shares in the attorney’s name, and he subsequently lost everything in one fell swoop. In the same year, the attorney closed the company, leaving with all the funds. That has left Mr Hayat having to seek an order for the sale of his own home in order to survive financially.

The OPG took over four months to terminate the LPA, and by then, as ever, it was too late. It was only after an intervention from his Member of Parliament that Mr Hayat was able to seek to recover funds via insolvency. I am afraid that route failed, so he did not recover any of those funds.

[Rachel Gilmour (Tiverton and Minehead) (LD)]

Minehead has a very large elderly and deprived population. Could we, as Members of Parliament, help the hon. Gentleman in his best endeavours by encouraging our constituents, particularly if we live in or represent constituencies with large elderly populations, to come forward and talk to us as their MPs, so that we can pass on their representations to him, because he is doing an excellent job?

[Fabian Hamilton]

Yes, indeed. My constituency office in Leeds North East is trying to compile a list of all the cases that have come to us. Every one of them is different but they all have a common theme: unscrupulous individuals who have taken advantage of a lasting power of attorney in order to gain the donor’s funds as quickly as possible for their own nefarious purposes. That tragedy is part of the ongoing trend of the abuse of older people, which we have to stop. As parliamentarians, we have a duty to do just that.

Another victim, Nicola, wrote to me to outline her family’s tragic case. Nicola is not alone when she describes the interaction between banks and prospective attorneys as “a tick box exercise”. In her case, the bank’s representative queried a change to the power of attorney that had occurred a few months earlier. The bank asked only for an affidavit from the solicitor to ensure the capacity of the donor. Later, however, court evidence showed that the solicitor had a conflict of interest in respect of the subject and their business manager.

Around the time of the bank’s involvement, the donor had received a diagnosis of Alzheimer’s disease, which had been confirmed by a CT scan nine months earlier. The donor’s deteriorating health was clear, with the LPA activated on health grounds having been actioned a year earlier. The LPA for finance was invoked following the specialist diagnosis. The donor was isolated, away from her brother, whom she had originally appointed as the attorney to protect her interests. The solicitor removed the safeguard of unanimity without advising her brother until months later, when it was far too late.

[Tessa Munt (Wells and Mendip Hills) (LD)]

I understood that someone could execute a power of attorney only if they had capacity, so if there had been a diagnosis of Alzheimer’s, that would not have been possible. Am I incorrect?

[Fabian Hamilton]

No, the hon. Lady is not incorrect, but an LPA can be executed in advance of any potential diagnosis. When somebody starts to feel that they are losing the capacity to make financial decisions or decisions about their future health, they can execute the lasting power of attorney to be implemented or actioned once the diagnosis is made or capacity is lost completely or irreversibly. That is my understanding, but I am sure the Minister will correct me if I am wrong.

The brother was then removed as an attorney two months later when he challenged the withholding of the donor’s income and clawing back of historical expenses. He was replaced by the donor’s accountant.

Nicola told me:

“The donor in this case had a long standing history with the bank both in her personal and business capacity. The bank would have been aware of the manager taking over the management of her personal banking affairs going back years. This may have started as a convenience for the donor, but later became a necessity.”

That partly answers the hon. Lady’s question. Nicola went on:

“This casual arrangement apparently accepted by the bank allowed financial abuse to follow.”

Obviously, in that case, the Office of the Public Guardian did not have a role, although it will later in the story. The business manager and the accountant both admitted in court that they had withheld income from the subject for the preceding year and continued to withhold income until the donor’s death seven years later.

Nicola has rightly called for banks to have annual face-to-face meetings with their elderly clients to establish their ability to manage their affairs on their own without outside influence. Any changes to LPA documents and wills within a year of a diagnosis of a cognitive illness, such as dementia, should also be treated with caution and investigated thoroughly before they are granted.

There is also serious anxiety about this issue within the industry. I have spoken to sources in the Office of the Public Guardian and trading standards who highlighted their concerns regarding the lack of the use of powers and the systemic failure to protect people. An officer with more than 30 years’ experience in trading standards told me that they are seeing the numbers of this type of abuse climb to levels they have never seen before, but they can never prosecute because of the lack of assistance from the OPG.

Furthermore, the officer had suspicions that a certificate provider was selling LPAs for far more than the usual registration fee, but when the evidence started to mount, the OPG and the Competition and Markets Authority failed to provide the crucial information needed to prosecute. I would be keen for the Minister to look into what steps are taken to verify that a certificate provider is genuine and not making profits from its work.

Another experienced officer from the Office of the Public Guardian told me about their utter frustration at the processes. They cited a four-month backlog that is allowing abuse to continue. In a lot of cases, that gives the abuser ample time to move money around to escape justice. When grounds-to-investigate processes begin, they are not acted on for weeks, with timeframes set for investigations only after that has taken place.

OPG staff say that since the introduction of digital applications for LPAs, demand for investigations has increased. They suggested that best practice is for the Court of Protection to give consent if the donor has lost capacity and the attorney wants to gift a substantial amount of money. However, that is being applied inconsistently among banks as there are no regulations that ensure they follow it through, and banks are simply taking an attorney’s word that a donor has lost capacity.

A staff member pointed to declining morale at the OPG because of the rise in cases, with little to no safeguarding training. They even expressed concern about the dehumanisation of the people they deal with. These are some of the most vulnerable people in the country, and some are clearly being coerced or abused.

Members of this House have previously looked closely at the lasting power of attorney. In 2004, the Health Committee endorsed the recommendations of the Joint Committee on the draft Mental Incapacity Bill relating to the lasting power of attorney. It recommended that there be clarification of the extent and limitation of an attorney’s powers, as well as adequate guidance and training for donors; that there be further guidance to warn donors of the potential for conflict; and that an additional safeguard be included in codes of practice as a mechanism by which the Court of Protection or the public guardian could monitor the use of LPAs with a view to preventing the abuse and exploitation of an attorney’s powers. It also recommended that an express duty of care should be incorporated into law for attorneys acting under an LPA, in that a greater degree of accountability should be required, with specific requirements in the form of a standard of conduct that should be included in the codes of practice. Attorneys should also be under an obligation to notify the donor, the bank and the public guardian that the donor lacks capacity, or is losing capacity, thereby putting that information on the public record and opening it up to challenge.

I thank the Minister for meeting me earlier this year following the introduction of my Bill. I know that she takes these issues extremely seriously, and I am pleased to see her in her place. I am also grateful to the victim-survivors of this horrendous financial abuse who shared their stories with me. Each story has similar patterns, but each has its own victim who is often coerced and robbed of their life savings and assets.

Finally, I am struck by the commitment of those who have reached out to me. Ending this injustice for other families and vulnerable people is their driving force, and I cannot commend them enough for their selfless and committed campaigning on an issue that could impact any single one of us. I look forward to the Minister’s comments.

16:21

[The Minister of State, Ministry of Justice (Sarah Sackman)]

It is a pleasure to serve under your chairship, Ms Vaz. I thank my hon. Friend the Member for Leeds North East (Fabian Hamilton) for continuing to raise awareness on this extremely important subject.

While I cannot speak to the individual cases that my hon. Friend raises, I send my deepest sympathies to those individuals impacted by the behaviours and abuse he describes, which were directed at them by people who had been selected to protect them and trusted with lasting power of attorney. I recognise the personal and financial impact on those affected people, and the impacts that are more widely felt by families.

My hon. Friend drew attention to the risk of abusers misusing lasting powers of attorney, and he highlighted the Office of the Public Guardian’s important role in investigating such concerns when they arise. His strong, ongoing commitment to raising awareness of those issues is welcome. As many hon. Members will know, he tabled a ten-minute rule Bill on this subject at the end of last year. That Bill has not yet reached Second Reading, but I know that he continues to engage across the mental capacity sector to raise awareness of it. As he noted, we met and discussed the Bill and his work in this space, and I welcome that engagement. I know that he has also engaged directly with the Office of the Public Guardian so that they can work together. Today’s debate is another demonstration of his dedication to the issue.

For context, the Mental Capacity Act 2005 provides the legal framework for supporting individuals who may lack capacity to make specific decisions. It ensures that any decisions made on a donor’s behalf are in their best interests, and that their rights and autonomy are respected. A lasting power of attorney is a legal document that allows a person—the donor—to appoint one or more trusted persons to make decisions on their behalf if they lose mental capacity. In that sense, at its best, it is a source of empowerment for individuals.

As my hon. Friend rightly points out, we need to set the very real issue of financial and economic abuse in context. The evidence demonstrates that the incidence of such abuse is thankfully relatively rare. At the end of 2024-25, the Office of the Public Guardian had 9.3 million lasting powers of attorney on its register. A total of 11,300 concerns were received by the Office of the Public Guardian during 2024-25. Some 96% of those concerns were responded to within five working days. Of those concerns, 3,800 cases led to a full investigation by the OPG, and 24% of completed investigations resulted in court action.

That does not for one second diminish the significance of the impact of abuse in individual cases, but it tells us that cases of abuse are rare in the context of a powerful and empowering tool for many. We want the LPA to be accessible, affordable and empowering. Indeed, I was advised by my officials that we should all take one out—obviously, through the proper processes and with the proper safeguards. It is important to set this discussion, which centres on the role that banks and financial institutions play, in the context of the existing regime and its safeguards.

LPAs must be registered with the Office of the Public Guardian before they can be used, and there are safeguards in place to protect against abuse. A lasting power of attorney must contain a certificate, signed by a person with relevant skill and expertise or by someone who has known the donor for at least two years. That person confirms that the donor understands the LPA, and that no fraud or undue pressure was applied in the making of it. That confirmation is an important protection against the coercion and abuse that we have been discussing. There is also an existing statutory right for attorneys and persons named in the LPA to object to its registration if they have concerns about how the LPA has been made. Once the LPA is registered, anyone—any third party—can raise an objection about how it is being used for the Office of the Public Guardian to consider. Those are the concerns that I spoke about, which in 3,800 cases last year led to an investigation and, in many cases, to court enforcement.

As I have said, the abuse of LPAs can have serious financial and personal consequences. The OPG plays an important role in identifying and responding to such cases. It investigates concerns raised about an attorney’s actions. It has powers to request information from individuals and organisations such as banks, care providers and medical professionals. It can ask attorneys to explain their decisions and to provide records. If the investigation reveals serious concerns, the Office of the Public Guardian can apply to the Court of Protection to suspend, restrict or remove an attorney.

The Court of Protection plays a crucial role in protecting individuals from the abuse or misuse of powers under a lasting power of attorney. It can order the revocation or suspension of LPAs or the removal or replacement of attorneys if it determines that the attorney is acting contrary to the donor’s best interest. If a donor has lost capacity when a lasting power of attorney is revoked and there is no other attorney to act, the Court of Protection can step in and appoint a deputy to manage the donor’s affairs. It can also issue orders to protect the donor, such as freezing bank accounts or prohibiting certain actions by attorneys. If an attorney’s behaviour raises concerns but does not breach the criminal law, the OPG can still order remedial actions.

The point I seek to make is that we have a regime that contains a sequence of safeguards designed to guard against the very abuse that my hon. Friend the Member for Leeds North East raises. It is also important that we scrutinise and hold the Office of the Public Guardian to account. That is the job of the Ministry of Justice, so I take very seriously the cases that my hon. Friend has raised, particularly where there are suggestions that the Office of the Public Guardian has not been as proactive as it might have been. That ongoing performance review of the OPG is critical.

I want to look ahead to the future. I am not for one second seeking to minimise the severity of what my hon. Friend described, nor seeking to suggest that there is not room for improvement or that we cannot strengthen those safeguards, because that will be a critical part of modernising the lasting power of attorney. As others have mentioned, such powers are only going to become more critical in an ageing society with growing numbers of people losing mental capacity through conditions such as Alzheimer’s or dementia.

As a Government, however, we are committed to going further and modernising the service to increase the safeguards in the lasting power of attorney process and to improve access to them. The Powers of Attorney Act 2023 introduced several provisions to enable a modernised system. To combat fraud and abuse, the Act will facilitate the introduction of further identity checks for parties making an LPA. The Act also lays the groundwork for reforms to the objection process so that any third party—typically organisations already involved with vulnerable adults, such as local authorities or the police—can object to an LPA being registered. Those reforms, which are in train, are designed to make the LPA system more secure, providing greater protection for individuals appointing attorneys to manage their affairs.

I am conscious of time but I will say something quickly about banks. My hon. Friend will understand that the Treasury leads on the regulation of the banking sector and on safeguards for vulnerable consumers, including those with LPAs. I am not a Treasury Minister but I want to reassure my hon. Friend that the Government work closely with the Financial Conduct Authority, which is the independent regulator, on vulnerable customers, including vulnerable donors of LPAs. In 2023, the FCA introduced the consumer duty. Banks, of course, are also subject to the financial abuse code, the Equality Act 2010—

Motion lapsed (Standing Order No. 10(6)).