Domestic Abuse Bill

Debate between Baroness Campbell of Surbiton and Baroness Williams of Trafford

Wednesday 21st April 2021 Lords Chamber

[The Minister of State, Home Office (Baroness Williams of Trafford) (Con)]

My Lords, the House will recall that these amendments sought to bring all carers within the definition of domestic abuse that applies for the purposes of the Bill. This would include carers who are unpaid, such as neighbours and friends, as well as paid-for carers and people in a position of trust who care for disabled people. The noble Baronesses, Lady Campbell of Surbiton and Lady Grey-Thompson, and others were right to bring the issue of carer abuse to the attention of the House, and I was most grateful to have a discussion with both of them this morning. I just hope that, this afternoon, the tech of the noble Baroness, Lady Campbell, works so that we all have the benefit of her quite considerable expertise.

I fully accept that disabled people who are abused by a paid or volunteer carer are just as in need of effective protection and support as someone who is abused by an intimate partner or family member. We remain firmly of the view that the focus of the Bill should continue to be on domestic abuse as the term is internationally recognised in the Istanbul convention and elsewhere. The elected House has agreed that we need to maintain this focus and disagreed with Amendment 1 by a substantial majority of 139.

None the less, the Government have reflected carefully on the earlier debates in this House, and we want to ensure that the justice system and social care sector deal with carer abuse effectively, while preserving the definition of domestic abuse in the Bill as originally introduced. The Government are therefore committing to a review of the protections and support available to victims of carer abuse. The review will access existing criminal laws, safeguarding legislation, regulation by the Care Quality Commission, the protections available for non-regulated care and the support available for victims of carer abuse, including local authority and voluntary sector support. We would aim to complete the review within 12 months.

Of course, there will be an opportunity—we discussed this this morning—for organisations representing disabled people and others to engage in the review, and naturally we will want to discuss the details of the review with the noble Baroness, Lady Campbell. I will confirm something that I said this morning: we will not just do a series of round tables. I agree with her that data is absolutely key to underpinning some of the work that might need to go forward. The review’s intention is to address the concerns raised regarding the adequacy or otherwise of the current protections and the support for victims of carer abuse. I hope that, with the discussion that we had this morning and the undertakings this afternoon, the noble Baroness and indeed the House will be content to support the Motion and not insist on the amendments.

[Baroness Campbell of Surbiton (CB) [V]]

My Lords, I will speak to Lords Amendments 1, 2 and 3 and Motion A, moved by the Minister. As I have stated, I will not oppose the Motion.

First, I thank the Minister for our helpful meeting today; despite the technological challenges, we had a very good exchange. At that meeting, I explained why I have decided not to pursue further attempts to incorporate carer abuse of disabled people in the Bill. Although I think we all agree that the abuse of disabled people frequently takes place within a domestic setting, it has become clear that the Bill is confined to abuse by an intimate partner or family member. There is no appetite to widen its scope at this stage.

In addition, this long-awaited Bill, with its multi- functional role, will demand a great deal of resources to change the domestic abuse culture. I would not wish to hold up the task of addressing the horrendous domestic abuse experienced by thousands of adults and children every day—no way.

I am currently confident—especially after our conversation this morning—that the Government have taken on board the deep concerns expressed across this House at the exclusion of disabled people from the Bill. I believe that they are committed to finding alternative means to address carer abuse, as the current protections are clearly inadequate.

I was therefore very pleased that, in the consideration of Lords Amendments in another place, the Minister, Victoria Atkins, announced in response to my amendments that

“the Government abhor all abuse, and we have every sympathy for the spirit of these amendments”

in the name of the noble Baroness, Lady Campbell.

“Abuse of disabled people by their carers must be called out and acted upon ... we have listened carefully to the experiences and concerns raised in this House and the other place ... That is why the Government intend to carry out a review of the protections for people at risk of carer abuse. We will engage with ... the disabled sector on the scope of the review, but it would broadly seek to examine the protections offered against carer abuse and the support available to victims. We have listened and we will act.”—[Official Report, Commons, 15/4/21; col. 519.]


I should be grateful if all sides of the House would strongly support and engage with this review. I hope it will not keep anything off the table, including further legislative protections if necessary. I hope that the review will commence as soon as possible. Of course, I shall be chasing it and look forward to working with the Government and especially with disabled people’s organisations.

Carer abuse—as evidenced throughout the pandemic and during earlier debates and pre-legislative scrutiny—must not continue unchecked. Disabled people deserve to have equivalent protection—no less.

Domestic Abuse Bill

Debate between Baroness Campbell of Surbiton and Baroness Williams of Trafford

Report stage
Wednesday 10th March 2021 Lords Chamber

[Baroness Williams of Trafford (Con)]

My Lords, as noble Lords have pointed out, Amendment 45 removes the cohabitation requirement contained within the controlling or coercive behaviour offence in Section 76 of the Serious Crime Act 2015. This would extend the reach of the offence, meaning that it may apply to post-separation abuse, or to any family member regardless of whether they lived with the victim.

As noble Lords will be aware, the current offence applies only to those who are “personally connected” as defined in Section 76 of the 2015 Act. This definition applies to those in an intimate personal relationship—whether or not they live together—or to those who live together and have either been in an intimate relationship or are members of the same family. The definition in the 2015 Act is therefore out of sync with the definition in Clause 2 of this Bill.

The Government have listened carefully to the debate in Committee, where the noble Baroness, Lady Lister of Burtersett, the noble Lord, Lord Hunt of Kings Heath, and many others argued for the controlling or coercive behaviour offence to be extended to cover post-separation abuse between intimate partners and interfamilial abuse regardless of whether the family members were living together. In Committee, I asked noble Lords to await the outcome of the review into the controlling or coercive behaviour offence—I really meant it—and I am pleased to say that this review has now been published.

The review found that police-recorded controlling or coercive behaviour offences, as well as prosecutions, have increased year on year since the introduction of the offence. However, the review also found there is still room for improvement in responding to this abhorrent crime. The review considered views from a number of stakeholders, who expressed concern that the cohabitation requirement in the offence is preventing some victims of this abuse from seeking justice, and that it poses challenges for police and prosecutors in evidencing and charging abusive behaviours under other applicable legislation.

Calls from domestic abuse services echo concerns around the cohabitation requirement of the offence, given that we know that victims who leave their perpetrators are often subjected to sustained or increased coercive or controlling behaviour after separation, and are statistically at the highest risk of homicide within the period immediately after they have left.

Controlling or coercive behaviour is an insidious form of domestic abuse and this Government are committed to ensuring that all victims are protected. We have heard the experts and considered the evidence on this issue and I am very pleased to support the amendments brought forward by the noble Baroness, Lady Lister. She has campaigned on it. She owns it. I am very happy that she is the sponsor. I commend the resolute campaigning on this issue by Surviving Economic Abuse and other organisations. I acknowledge the points made by the noble Baroness, Lady Warwick, and I will draw her comments to the attention of my colleagues in the MoJ.

Amendment 45 will bring the definition of “personally connected” as used in the controlling or coercive behaviour offence into line with that in Clause 2 of the Bill and send a clear message to both victims and perpetrators that controlling or coercive behaviours, irrespective of the living arrangements, are forms of domestic abuse.

This Government are committed to doing all we can support victims and to tackle offenders. I am delighted that, in removing the cohabitation requirement in the controlling or coercive behaviour offence, we can take another step towards ensuring that every victim has access to the protection they need.

Amendments 46 and 47 seek to expand the definition of “personally connected” within the revised offence of controlling or coercive behaviour to include both paid and unpaid carers. I made it very clear during the debate on Monday on earlier amendments tabled by the noble Baroness, Lady Campbell, that the Government absolutely recognise that abuse can be perpetrated by carers. The other point that I made on Monday was that many carers will be captured by the “personally connected” definition, being family members or partners. However, I reiterate that extending that definition in the context of what is a domestic abuse offence would have detrimental effects on the overall understanding of domestic abuse and the complexities of the familial and intimate partner relationships that domestic abuse is understood to encompass, where the affectionate emotional bond between the victim and the perpetrator plays an important role in the power dynamics. By extending the definition to include carers we would be broadening the definition of “personally connected” to include a much wider range of connections within health and social care settings, which are of course covered by other legislation, and would confuse the meaning of “domestic abuse”.

The noble Baronesses, Lady Lister and Lady Burt, talked about the important issue of ongoing training. I acknowledge that there is more to do to ensure that the offence is understood, and we will update the statutory guidance, in consultation with police and others.

In answer to the question from the noble Baroness, Lady Lister, about what next, we will be strengthening the legislation around controlling or coercive behaviour to ensure that all victims of domestic abuse are able to receive protection, regardless of their living arrangements with their abusers. This summer we will be publishing a domestic abuse strategy, which will build on the work to date to help to transform the response to domestic abuse and to tackle perpetrators. We will consider the wider policy and data recommendations made in the review throughout the development and implementation of the strategy, and we will of course continue to engage with domestic abuse organisations throughout the process.

The noble Baroness mentioned monitoring. At the moment, all legislation is subject to ongoing review and monitoring, and we have the very important benefit of the domestic abuse commissioner, who I know will be keeping a very careful eye on how the legislation is working in practice.

I will not repeat the other points that I made on Monday, but I hope that, in the light of the debate then and my response today, the noble Baroness, Lady Campbell, will be content not to move her amendment. To be clear, the Government’s position on Amendment 45, should Amendments 46 and 47 be moved, is that we will not support Amendments 46 and 47. There is cross-party support for Amendment 45 as currently drafted, and I urge the House not to detract from that should it come to a vote on Amendment 46. The House must of course first reach a decision on that amendment.

[Baroness Campbell of Surbiton (CB) [V]]

My Lords, I thank all noble Lords who have supported my amendments. I am grateful for the very kind words about my own personal commitment to these issues and that of my noble friend Lady Grey-Thompson, who has wheeled with me through this amendment rollercoaster today. Disabled people, who face so many barriers in their fight for equal dignity and safety from those who may abuse their vulnerability, need this support; it gives them all strength to carry on.

I am of course deeply saddened by the Minister’s response. As I said earlier, I am not able now to divide the House; my hands are tied. I have no alternative than, very sadly, to withdraw my amendment.