Divorce, Dissolution and Separation Bill [HL]

Debate between Baroness Burt of Solihull and Lord Keen of Elie

Report stage & Report stage (Hansard) & Report stage (Hansard): House of Lords
Tuesday 17th March 2020 Lords Chamber

[Baroness Burt of Solihull]

My Lords, I sympathise very strongly with this amendment, which as we have discussed deals with the vexed question of service. There is a balance to be struck where there is one applicant for divorce—in other words, it is not a joint application—between ensuring that the respondent has received adequate notification and that they are not able to frustrate the process by claiming not to have received notice. I am sure the House is very grateful to the noble Baroness, Lady Shackleton, for her explanation of how that can be overcome. In meetings with the Minister, and in this Chamber, he has given assurances that the Family Division would make rules that strike the balance between sufficient notification and attempts to frustrate the process.

We accept the Government’s position that the arrangements for service are best left to the Family Procedure Rule Committee. We also accept that, increasingly, applications will be made online, in which case service is usually effected by the court. But we must also agree with the Government that provisions must be made for paper applications as well as online applications.

It is important that the respondent must be made aware of the proceedings as early as possible. The rules need to provide that a respondent cannot frustrate proceedings by trying to evade service, or by failing to acknowledge service. I would greatly appreciate further clarification from the Minister, and further assurances that this amendment will not be necessary.

[Lord Keen of Elie]

I thank the noble Baroness, Lady Meyer, for moving the amendment on behalf of the noble Lord, Lord Curry, and other noble Lords for their contributions. We understand the concerns that part of the intention behind the Bill’s new minimum 20-week period between the start of proceedings and when the court can be asked to make the conditional order could be undermined if notice of the proceedings on the respondent party is substantially delayed. I provided assurances in Committee that a conditional order will not be made without satisfactory evidence of service. Of course the Bill does not provide for divorce or dissolution by 26 weeks’ notice; confirmation is required at both conditional and final order stages that the marriage or civil partnership should be brought to a legal end.

However, in this matter we have to be led by the evidence. Professor Trinder’s study of 300 undefended divorce case files found that no acknowledgement of service was returned by the respondent in 41 of the sample cases, which is about 13.7% of the total. If you were to extrapolate that nationally, that would amount to about 14,000 cases annually. Very few cases appeared to result from difficulty in locating the respondent; instead, the majority of the 41 non-returns appeared to reflect a decision by the respondent not to co-operate with the process, either because they were opposed to the divorce in principle or the reason given for it or simply because they wanted to make the process more difficult for the applicant. Resolution, the leading body in England and Wales representing over 6,000 family justice professionals, has also identified frustration of the proceedings by the respondent as the greater mischief.

I accept that in tabling his amendment the noble Lord, Lord Curry, was offering a constructive suggestion but that he recognises that a respondent may be deliberately evasive. However, the material effect of his amendment would apply to applications made by one spouse only when the 20-week period had started and the respondent had been served.

There is a difficulty here. The only fail-safe way of knowing that the respondent has been served is when the respondent returns to the court with the form acknowledging service, if indeed they return at all. In his amendment, the noble Lord sought to address this issue by giving the court the power to abridge the 20-week period between the start of proceedings and when it may make the conditional order if there is evidence that the respondent has sought to evade or delay service. The difficulty, as with the existing procedures for the court to grant deemed service or dispense with service in England and Wales, is the evidence that the court will require to be shown that the respondent should be aware of the application when in fact he refuses to return the acknowledgement of service, and therefore it makes the process of dispensation difficult. Indeed, such a process can be lengthy and requires separate applications to the court, which in turn can make it a complex process for applicants to navigate.

The amendment would place a further requirement on the applicant to apply to abridge the time of the 20-week period in such cases by providing evidence that the respondent has deliberately sought to evade service. Inviting an applicant to prove a negative is always going to be rather challenging, particularly in this sort of process. We have listened carefully to what has been said about this matter, both in debate and in the meetings that I have had with a number of your Lordships.

We consider that the right way to deal with this concern is to commit, as I committed at the previous stage, to work with the Family Procedure Rule Committee, which already has the relevant statutory powers to address the issue of service, and which has a statutory duty to consider whether to consult on rule changes. We are therefore inviting the Family Procedure Rule Committee to consider the matter when reviewing the rules required to implement the Bill, including a rule requiring service of the application within a specific period following the issuing of proceedings. I believe that this approach has drawn support from all sides of House, and I therefore invite the noble Baroness to withdraw her amendment.

Crown Prosecution Service: Rape Cases

Debate between Baroness Burt of Solihull and Lord Keen of Elie

Thursday 5th March 2020 Lords Chamber

[Lord Keen of Elie]

My Lords, there has been widespread concern about the utilisation of non-disclosure agreements, not only in the context of university administration but across the board. It is a matter of concern, but I cannot at this time indicate a time for the introduction of legislation on the matter.

[Baroness Burt of Solihull (LD)]

In its thematic review of rape cases, the CPS concluded that, if 58,657 allegations of rape were made in the year ending March 2019 but only 1,000 successful prosecutions followed, something must be wrong. It is not kidding. The CPS points the finger at underresourcing and additional factors such as the growing evidential importance of digital media. The Minister has referred to the review: does he agree that it needs urgently to be carried out and that the resources, and legislation if necessary, should be provided to create a system fit for purpose and to restore justice for victims of this heinous crime?

[Lord Keen of Elie]

I concur with the sentiment expressed by the noble Baroness. On digital material, which has increased enormously in recent years, the CPS introduced a guideline in July 2018 which makes it clear that it should not be assumed as a matter of course that such digital material is looked at. However, we have launched a recent consultation on the revised disclosure guidelines. That will run until 22 April and I hope that those who have an interest in this matter will direct their comments to the Office of the Attorney General in that respect. With the recent increase in funds to the CPS, we have taken steps to increase the number of prosecutors by about 20% in order that we can be more effective in pursuing RASO prosecutions.

Sharia Law: Marriages

Debate between Baroness Burt of Solihull and Lord Keen of Elie

Thursday 4th July 2019 Lords Chamber

[Lord Keen of Elie]

My noble friend is perfectly entitled to disagree with me, and I in turn disagree with her. Let us be clear on what the position is, because some of this proceeds on a misapprehension. It is perfectly possible to perform a lawful marriage in England and Wales under sharia law provided that the relevant mosque has been identified and registered by the registrars as a place for the performance of that ceremony, and a person has been identified by the registrars as suitable to be present for that ceremony. The law of England and Wales has then to be adhered to. Sharia law is not the law of England and Wales; it has no standing. Our national marriage law prevails in these matters. I reiterate: we understand and appreciate that there is a social issue here, because many are not aware of the true position of our law in respect of marriage. Indeed, many are not prepared to adhere to that in circumstances where one or other party may be ignorant of their true position and its consequences.

[Baroness Burt of Solihull (LD)]

My Lords, the Council of Europe, referred to in the Question from the noble Baroness, Lady Cox, is very clear that where human rights are concerned there is no room for cultural exceptions. The independent review, commissioned by the Government in 2016, is also clear on its main recommendation that Muslim women undergoing Islamic marriage must be protected by British civil law. Too many vulnerable women are suffering and will suffer until the Government pull their finger out and implement this recommendation.

[Lord Keen of Elie]

My Lords, with great respect, some of what has been said by the Council of Europe in its Resolution 2253 does not reflect the true position of marriage law in England and Wales. In particular, the reference to civilly registering a marriage is inept. It does not reflect the true position of our law in England and Wales. Civil registration per se is not a route to a lawful marriage.

Family Courts: Domestic Violence

Debate between Baroness Burt of Solihull and Lord Keen of Elie

Tuesday 21st May 2019 Lords Chamber

[Lord Keen of Elie]

I am not able to identify the link that the noble Baroness refers to. We have full confidence in our family courts system and in the ability of our circuit and district judges to discharge their functions objectively and without regard to issues of gender. In order to do that in cases of the kind that we have discussed, they will always be guided by the requirement for the interests of the child to be paramount.

[Baroness Burt of Solihull (LD)]

My Lords, perhaps I may ask about the Minister’s announcement of the setting up of an expert panel. Children are often victims too, whether the damage inflicted is physical or psychological. I am worried about the fundamental presumption of the family courts that the interest of the child is to have contact with both parents, sometimes even when abuse of the parent with care is proven or alleged. However, this is tricky territory, because parental alienation can enable one parent to use the children as a weapon. Will the review, called for by 123 colleagues in the other place, work alongside the panel or is it not needed now because we have the panel?

[Lord Keen of Elie]

My Lords, the intention is that the expert panel should meet in June, that it should report in a very short period and that we should then be guided by its findings. That will inform us more fully as to the evidential position that should properly be considered. I emphasise that the paramount consideration in these matters is always the interests of the child. The Children Act 1989 rightly places the child’s welfare as the paramount consideration, and there is no absolute right for any parent to have contact with a child.

Islamic Ceremony: Civil Marriage Registration

Debate between Baroness Burt of Solihull and Lord Keen of Elie

Thursday 28th February 2019 Lords Chamber

[Lord Keen of Elie]

My Lords, I must make it clear that the offence of forced marriage does not give legal recognition to marriages but is intended to protect victims from this abhorrent practice, regardless of the validity or otherwise of the marriage. Access to financial orders available on divorce depends on whether or not there has been a legally void or dissolved marriage and is governed by an entirely separate legal regime.

[Baroness Burt of Solihull (LD)]

My Lords, marriage is not just some romantic notion of happily ever after—after 25 years of marriage, I have learned that it is much more than that. It gives protections and rights that should be available to all couples regardless of whether or not they are religious. But these Muslim women, who believe that they are legally wed, may not find out that they do not have the protections of the law until far too late. That is why the requirement for a civil ceremony as well, as recommended by the Home Office’s own independent review last year, is so important. Is it not high time now for a fundamental review of the Marriage Act 1949 to recognise all forms of marriage in the 21st century?

[Lord Keen of Elie]

The general proposition that we should recognise all forms of marriage raises issues in itself. Our marriage law actually goes back to Lord Hardwicke’s Act of 1753 rather than just to 1949. It is a complex area that we will consider from the spring onwards and in which we will have to move with care. But we cannot simply recognise all informal types of marriage. We have a basic marriage law in this country based on the place in which it is celebrated and the fact that that place is open to the public and that it should be witnessed. We cannot move away from that. Indeed, to do so would create other issues and problems for ourselves.

Prisoners: Acquired Brain Injuries

Debate between Baroness Burt of Solihull and Lord Keen of Elie

Tuesday 12th February 2019 Lords Chamber

[Lord Keen of Elie]

My Lords, the NHS England prison healthcare national standards service specification requires providers to screen individuals where it is suspected that they may have an acquired brain injury. Clearly, we want to take this further in light of the recent report from the Disabilities Trust. We have now formed a cross-government group with the Department of Health and Social Care, NHS England and the Prison Service to develop a more strategic picture of acquired brain injury within the criminal justice system. We hope to be able to report to the group chaired by the noble Lord by the end of March.

[Baroness Burt of Solihull (LD)]

My Lords, I am very heartened by the Minister’s response. This shocking finding explains the possible source of many difficult and counterproductive behaviours one sees in the prison population, which can seriously hamper the ability of prisoners to cope inside and outside prison and of professionals to help them. The brain injury screening index provided by the trust is freely available, and its use and effectiveness among prisoners at Drake Hall is tremendously encouraging. Will the Minister agree to add his voice to the Disabilities Trust’s demand that all prisons should adopt it?

[Lord Keen of Elie]

Clearly, we are reviewing this matter with a degree of urgency, and to that extent I add my voice. There is an issue about the extent to which we can apply particular test criteria in the context of prisoners. These cannot be over-complex because of the nature of the people we are dealing with, so this has to be a matter for further consideration. However, we are looking not just at those already in prison but those who come into contact with the criminal justice system. It is equally important that they, too, should, where possible, be assessed for the sort of vulnerabilities referred to by the noble Baroness.

Female Offender Strategy

Debate between Baroness Burt of Solihull and Lord Keen of Elie

Thursday 31st January 2019 Lords Chamber

[Lord Keen of Elie]

My Lords, I entirely concur with the noble Lord’s observations. Indeed, our Female Offender Strategy seeks to build on the seminal report of the noble Baroness, Lady Corston, which of course goes back to 2007.

[Baroness Burt of Solihull (LD)]

My Lords, the extension of mandatory post-custody supervision has disproportionately affected women. Recall numbers for men have risen by 22% since the changes were introduced but for women they have grown by 131%. Women are trapped in the justice system rather than being enabled to rebuild their lives. The Prison Reform Trust has called for mandatory post-custody supervision to be abolished. Does the Minister agree that the present system is not working, and does he have plans to review it?

[Lord Keen of Elie]

My Lords, the idea of mandatory supervision for those serving a sentence of less than 12 months was introduced only quite recently. There is a disproportion between male and female offenders in that context—I quite accept that. Indeed, that manifests itself in various other parts of the prison and custodial system. At the moment, we are seeking to extend community centre services, to help to accommodate those released after short sentences, and to combine community services with treatment requirement protocols.

That is extremely important, particularly for female offenders, where we see a vast proportion who have reported elements of mental health difficulty or who suffer from alcohol issues and, very often, drug abuse issues as well. Over and above that, an enormous proportion of these female offenders have at times been subject to domestic violence. We are trying to direct these services at these issues and will continue to do so.

Prisons: Women

Debate between Baroness Burt of Solihull and Lord Keen of Elie

Tuesday 3rd July 2018 Lords Chamber

[Baroness Burt of Solihull]

To ask Her Majesty’s Government how they will ensure that provision for women in the prison system is properly funded, following their decision to abandon plans for five community prisons for women in England and Wales.

[The Advocate-General for Scotland (Lord Keen of Elie) (Con)]

My Lords, I can confirm that there are no plans to reduce funding for the women’s custodial estate. We want to provide the best rehabilitative regimes possible which are specifically tailored to women’s needs to break the reoffending cycle. We are also increasing the number of front-line prison staff, designing a new offender management and custody model tailored to the needs of women and continually improving standards in our prisons.

[Baroness Burt of Solihull (LD)]

My Lords, this move is very welcome, but can the Minister elucidate? This initiative is costing only £5 million for the initial investment, as opposed to the £50 million that building five new prisons would have entailed, the balance being returned to the Treasury. What is the timetable for building each of these residential centres and how many women will be accommodated initially? If the pilots are successful, how many centres will be built? Finally, will the Minister assure the House that funding will be found to roll out this programme throughout England and Wales, so that we can stop locking women up in prison for minor offences and start tackling the underlying reasons why most of them end up in prison in the first place?

[Lord Keen of Elie]

My Lords, we are of course concerned to address short custodial sentences and the viability of moving towards community-based sentences. I thank the noble Baroness, Lady Burt, for acknowledging that this is a move in the right direction. I should perhaps clarify that the £5 million that has been referred to will be used for our work with partners in the community for community-based resolution for women. In addition, we are providing for a women’s centres pilot which will involve five residential women’s centres, but that budget is distinct from the £5 million. I hope I have made that clear. I cannot give a precise timescale for the rolling out of that pilot, but we do have it in course.

Prisons: Women

Debate between Baroness Burt of Solihull and Lord Keen of Elie

Monday 5th March 2018 Lords Chamber

[Baroness Burt of Solihull]

To ask Her Majesty’s Government what assessment they have made of the suitability of bids for replacement services for women prisons made following the closure of HM Prison Holloway.

[The Advocate-General for Scotland (Lord Keen of Elie) (Con)]

My Lords, women formerly held at HM Prison Holloway were transferred to other prisons from July 2016. Where equivalent provision was not already in place at the destination prison, HM Prison and Probation Service managed the transition of services from Holloway, giving due consideration to the needs of both service providers and the prisoners that they support. As a result, bids for replacement services were not undertaken.

[Baroness Burt of Solihull (LD)]

My Lords, 11 years ago, the Corston report stated that the Government should create a strategy to replace existing women’s prisons with suitable, geographically dispersed, small, multifunctional custodial centres within 10 years. As the noble and learned Lord has pointed out, Holloway is now closed and female offenders are being redistributed, even on short-term sentences, all over the country, which negatively impacts on the stability of their family life. Is the Minister saying that this policy is not now going to be pursued by the Government?

[Lord Keen of Elie]

My Lords, with regard to the dispersal of prisoners from HM Prison Holloway, there were at the time of the move 241 prisoners who had to be transferred to other prisons. Of those, 114 were transferred to Downview and the remand prisoners, extending to about 56, were transferred to Bronzefield. Both those establishments had suitable facilities and services for the prisoners who were transferred. We are, of course, engaged in looking at and renewing the entire prison estate at the present time, which is one reason for the disposal of HM Prison Holloway.

Disabled People: Medical Records

Debate between Baroness Burt of Solihull and Lord Keen of Elie

Tuesday 7th February 2017 Lords Chamber

[Baroness Burt of Solihull]

To ask Her Majesty’s Government what assessment they have made of the use of medical records of disabled parents in child custody cases.

[The Advocate-General for Scotland (Lord Keen of Elie) (Con)]

My Lords, the welfare of the child is paramount in court decisions about a child’s upbringing. As well as any other matters, the court can take into account the medical record of a parent with disabilities if it considers such evidence relevant to the case. Judges must act in accordance with the principles of the European Convention on Human Rights, including those relevant to preventing discrimination on the grounds of disability.

--- Later in debate ---

[Baroness Burt of Solihull (LD)]

My Lords, I am sure that noble Members will all agree that the welfare of the child must be paramount, but many disabled parents feel that they are unfairly discriminated against in child custody cases. Some fear visiting the doctor in case the use of their medical records in court might contribute to their being designated unfit parents. The Equality Act is silent on this matter, so will the Minister consider adding a clause to the Act to clarify the situation and to reassure disabled parents that they will be fairly treated in the family courts?

[Lord Keen of Elie]

I am obliged to the noble Baroness for her observation, however I fear that some confusion has entered the debate around the issue of discrimination. The Equality Act 2010 deals with the issue of discrimination on the part of individuals. Judicial decision-makers are exempt from the provisions of the Act on very reasonable grounds; however, any judicial decision-maker is bound, in any event, by the provisions of Articles 6, 8 and 14 of the European Convention on Human Rights, and is therefore bound never to discriminate against any party on grounds of disability.

Family Court

Debate between Baroness Burt of Solihull and Lord Keen of Elie

Monday 9th January 2017 Lords Chamber

[Lord Keen of Elie]

I am obliged to my noble and learned friend, who has a great deal more experience in these areas than I would ever hope to achieve. Clearly, the purpose of cross-examination, whether it is to challenge credibility or reliability or a particular account, should be pursued by way of questions. It is not an opportunity to make statements to the court or to give evidence and should never be an opportunity to resort to abuse, whether of a victim, a witness or the court itself.

[Baroness Burt of Solihull (LD)]

My Lords, this issue is widespread, serious and urgent. Research by Women’s Aid found that one in four women in this situation faced direct questioning from their alleged abusers. We welcome the urgency of the Government’s review, but does the Minister agree that some things could be done now without the need for legislation—for example, having the victim and the alleged abuser in different rooms, with questions being put via a video link? Will the Minister commit to look at what the Government can do now, and place whatever legislation is necessary before Parliament at the earliest possible moment? Will he also look at what can be done in the interim?

[Lord Keen of Elie]

I am obliged to the noble Baroness, who makes a very good point with regard to how we may attempt to tackle this matter, by way not only of legislation, be it primary or secondary, but also by way of the procedural rules which apply in the context of family cases. That will be looked at in the context of the present review and work. If we consider that steps can be taken, we will make representations to the judiciary so that it can properly examine how these procedural rules can be considered. I understand that the President of the Family Division has arranged that certain work should be undertaken with regard to children in the context of the procedural rules.