Victims and Prisoners Bill

Baroness McIntosh of Hudnall Excerpts

Committee stage
Wednesday 31st January 2024 Lords Chamber

[Baroness Brinton (LD)]

I am very grateful to my noble friend, and I beg leave to withdraw my amendment.

[The Deputy Chairman of Committees (Baroness McIntosh of Hudnall) (Lab)]

I am going to give the Minister an opportunity to respond, if he wishes.

[Lord Bellamy (Con)]

Thank you. The Sentencing Council point is an interesting one, which I will reflect on. As for the request from the noble Baroness, Lady Brinton, of course I am prepared to have another meeting.

Divorce: Financial Provision

Baroness McIntosh of Hudnall Excerpts

Wednesday 8th March 2023 Lords Chamber

[Lord Bellamy (Con)]

My Lords, the Government will do their very best to make that the Law Commission has the resources it requires.

[Baroness McIntosh of Hudnall (Lab)]

My Lords, given that there is clearly some scepticism about whether the Law Commission is the right body to conduct this review, could the noble and learned Lord give the House some idea of how long he expects it to take to undertake it, and at what point he thinks it will be commissioned so to do?

[Lord Bellamy (Con)]

My Lords, I hope to make a further announcement immediately before or shortly after the Easter Recess. Matters are being finalised at the moment. Typically, Law Commission work takes place in two phases. There is an initial phase of the kind I have just outlined, where the problem is identified and comparative studies are made. That is typically followed by a consultation phase in which all stakeholders’ views are fully taken into account, which results in final recommendations and possibly draft legislation. That process will probably take at least two years.

Her Late Majesty Queen Elizabeth II

Baroness McIntosh of Hudnall Excerpts

Saturday 10th September 2022 Lords Chamber

[Baroness Mobarik (Con)]

My Lords, I offer His Majesty King Charles and the whole of the Royal Family my deepest condolences on the passing of their mother, Her most inspiring Majesty Queen Elizabeth II. As many noble Lords have said, this day was inevitable, but somehow we never expected it to happen. In recent times, knowing of Her Majesty’s ill health, I would assure myself that she would live until at least 110, so it was a tremendous shock to hear the sad news on Thursday evening that Her Majesty had indeed passed away in her beloved home in Scotland.

She was a constant presence. I remember as a little girl seeing this beautiful lady on the television and on the covers of magazines and newspapers, far more glamorous than any movie star and with such grace, elegance and dignity. Later in life, when I had the great honour of meeting Her Majesty—wonderfully, on more than one occasion—her kindness and informality made those moments very special, despite being nerve-wracking at the same time.

It was always clear that her family were uppermost in her mind. In 2006, when I was invited to Buckingham Palace by Her Majesty for an intimate lunch for 12, I remember that when she spoke with me and the other two ladies invited in the drawing room prior to lunch, she immediately told us how upset she was that her lovely granddaughter Zara had fallen from her horse and really hurt herself. It was the heart-warming concern of a grandmother, just like any other. Similarly, on my going to see Her Majesty formally before taking up the position of Government Whip in 2016 along with two other colleagues, she spoke about her uncle Fergus Bowes-Lyon, who had died in the First World War, and how it had taken 100 years until the whereabouts of his body were finally confirmed. There was no attempt to hide the deep sadness, but a willingness to share that common humanity that binds us all and to share those emotions of love, loss and grief.

On the last occasion when I met her, it became apparent to me that here was a person of infinite wisdom and kindness, the sort of wisdom and kindness that are etched on the faces of great spiritual beings. She left an impression on all who met her, even those who had only seen her from afar or on their television screens.

There was the greatest admiration for her from every part of the Commonwealth and beyond. My parents, who came to this country from the Commonwealth, had the greatest respect and affection for Her Majesty. My late father-in-law was strong and successful in his youth, but in his mid-90s, as his memory dimmed, he could not quite remember even the name of his own son. Still, when his son visited him in Pakistan, he said, “Young man, you come from London. There is a lady there, the Queen. She is a wonderful woman.” That was the one outstanding and lasting memory that he had of his time living in Britain.

Her late Majesty Queen Elizabeth’s devotion and service to her country and people is a legacy of epic proportions. May she rest in peace, and may King Charles III have a long, happy and illustrious reign.

[Baroness McIntosh of Hudnall (Lab)]

My Lords, I am afraid it is very hard to know where one comes in the pecking order in this debate, so I apologise to anyone who feels that I have stepped ahead of them.

The impact of Her late Majesty’s death has been immense, as we have heard in this debate and beyond. We are all diminished, shocked and thrown off balance by the loss of such a key figure in our life, the life of the nation and indeed the world. Our thoughts are with her family and especially with His Majesty the King, who is assuming his onerous new role at a time of great personal sadness. His first address to us all was profoundly affecting. For me, as he spoke those words from the end of “Hamlet”, in my head I heard the opening chords of another farewell, doubtless familiar to many of your Lordships: the “Angel’s Farewell” from Elgar’s setting of Cardinal Newman’s “The Dream of Gerontius”:

“Softly and gently, dearly-ransomed soul,

In my most loving arms I now enfold thee”.

The King, who I believe has long understood the consoling power of great art, will need our love as well as our allegiance as he takes up his duties.

I was born in the reign of King George VI and, indeed, attended his lying in state in 1952 when I was a very small child. I am not entirely sure why my father thought it appropriate to bring one so young to queue on Westminster Bridge in the February fog, and to be honest I do not remember much about it, but I am glad I have the photograph to prove that I was there.

What I absolutely remember is going over a year later to the pub in our village to watch Her late Majesty’s coronation on television. I had never seen a television before. The screen was tiny and the room was hot and crowded, but none the less the grandeur and magic of the ceremony came through clearly. Although I have watched it many times since, that first impression stays with me of a radiant young woman at the centre of a magnificent piece of theatre embarking on a lifetime of service—and, my word, what a lifetime it turned out to be.

I shall speak very briefly, because much that needed to be said has already been said, mostly by the noble Baroness, Lady Bull, about the Queen’s relationship with the arts, particularly with the theatre, where she was closely involved with the two organisations with which my I spent most of my professional life: the Royal Shakespeare Company, of which she was patron from the granting of its royal charter in 1961 until her death, and the Royal National Theatre, where she was recently succeeded as patron by the Duchess of Cornwall, now Queen Consort. Her Majesty’s patronage was hugely important to those organisations, as indeed it was to the whole cultural sector, which benefited so much from her interest and support.

I was privileged to meet her several times. I was going to share an anecdote, as so many noble Lords have done, but in the interests of brevity I have decided not to. Maybe there will be another time; noble Lords will just have to wait and see. What I wanted to say is that monarchy must be performed, as Shakespeare knew very well. I think Her Majesty was one of the great performers of our age. She famously said, “I have to be seen to be believed.” She knew that convincing performance is never about faking or pretending; it is about embodying truth. Throughout her life she had an unfailing capacity to understand exactly who she needed to be in every different circumstance, from great occasions of state through to taking on, as we have heard referenced so many times, an animatronic bear, and completely upstaging him with quietly impeccable comic timing.

She knew how to scale up and to scale down. She understood the diversity of her audiences and could adapt to their different needs while remaining always essentially herself. This ability was partly a natural gift, certainly, but also, as with all great performers, the result of meticulous preparation and unremitting hard work. As we saw, Her Majesty never stopped working at it right up until the end. She was and will remain an example to us all. May she rest in peace.

[The Lord Bishop of Gloucester]

My Lords, we have heard many wonderful tributes to Her late Majesty Queen Elizabeth II. Like others, I want to give thanks for her life of service, love and humility, rooted in her faith in Jesus Christ. I am delighted that the most reverend Primate the Archbishop of York mentioned those jigsaws and those barbecues in winter. The right reverend Prelate the Bishop of London, in a moving and poignant way, mentioned the experience of paying homage. I want to add one slightly amusing story to the wealth of tributes that relate to paying homage because, as has been said, our late Queen had an amazing smile and a great sense of humour.

As with all diocesan bishops, after I was announced as Bishop of Gloucester, I went to Buckingham Palace to pay homage. I was the first female diocesan bishop she had ever received and there was a certain amount of fluttering before the doors opened about whether I should curtsy or bow, wearing my robes. Just before we went in when, as usual, the Bible was being carried in on a cushion open at the verse I had chosen, I was told that I would be asked to kiss the Bible at the appropriate moment. There were a few moments of anxiety as I said, “I can’t possibly do that”, and some anxious glances as if there was some deep theological reason why I would not kiss this amazing Bible. I simply said, “I’m wearing lipstick”; that had never been experienced before. I was told simply to put my nose into it, which is what I did.

After the formalities of paying homage, she immediately put me at my ease and, as we chatted, spoke to me about being the first female diocesan bishop. Rather amusingly, she said that her husband Philip wondered what on earth my husband would do, and indeed what the husbands of other bishops would do. I found that rather amusing because I thought of all people in the country who should know what the husband of a bishop would do, one was the Duke of Edinburgh.

At this time of huge loss and mourning, I give such thanks to God for a life well lived—a life of faith and love. As I recall, the verse I chose that day of paying homage was from the Gospel of John, and it is one that the Queen lived. In Jesus Christ’s words to his followers: “Abide in me”. She did and she does. May she rest in peace and rise in glory. God save the King.

Judicial Pensions Regulations 2022

Baroness McIntosh of Hudnall Excerpts

Monday 4th April 2022 Grand Committee

[Lord Davies of Brixton (Lab)]

My Lords, I welcome the regulations: I am in favour of good pension schemes for our public servants, and this certainly counts as a good scheme. I thank the Minister for his clear and detailed explanation of the regulations and the reasons for the specific characteristics of the proposals compared with other public sector pension schemes.

As has been explained, the fact that the scheme is good is because of the particular characteristics of the workforce, as it were, and a strong case has been made. I would just express a word of caution here. It is difficult to constrain unique circumstances. There are always other circumstances that might be argued to be similar. There will obviously be room for debate about how similar the circumstances need to be to trigger the special circumstances. A strong case has been made for this being a good scheme, but similar problems of recruitment and retention, at least potentially, might arise—for example, with persuading senior medical surgeons to remain in the workforce. There is a clear suggestion that surgeons are leaving because of the impact of the normal rules on pensions. I have heard the same problem raised in relation to senior figures in the military. In some way I welcome the fact that it is possible to argue that other people are entitled to similar advantages.

The beneficial deal that the judges are receiving here does not consist just of the scale of the benefits, although they are undoubtedly good. There is also this special issue of the tax treatment; it is a slightly separate issue. The Minister needs to bear in mind that his colleague the Chancellor of the Exchequer has frozen the limits on the lifetime allowance and the annual allowance for prolonged periods, and this is having an increasing impact on people’s pensions. It is now reaching well beyond those who might be characterised as high earners. It is reaching down and becoming a problem, not for people with average earnings but certainly for those well below the rate at which the upper-tier tax rate comes into effect.

There is an issue here that the Government will need to confront. I understand that this is not in the Minister’s remit, but I am just flagging it up. It cannot be said that this problem applies only to the judiciary. It is a general issue and will become increasingly difficult for the workforce, given that the limits are currently being frozen for prolonged periods. One suspects that what the Chancellor has in mind here is increasing public revenues, but there is inevitably a cost to be paid in its impact on people’s pay.

We touched on these issues when the Bill—now Act—was going through, but I think our focus was on other issues; I mentioned these points in passing. Given the regulations, I emphasise that I do not think these issues are quite as self-contained as the Government suggest.

The temporary reduction is an interesting development. It is very scheme specific, but it is an issue raised by a number of the public sector schemes. Given that we have now passed the deadline, do we have any idea at this stage how many members have opted for the lower-rate contributions? The difference in what they are being asked to pay is not all that substantial, but one understands the sensitivity of take-home pay, even for judges. It would be interesting to know whether any figures are available. We are now into the new scheme, so presumably people must by now have opted for the lower or the higher rate, and it would be interesting to know what impact that option has had.

As a final point, I just wish that the terminology was slightly different. This has been referred to—I raised this point when we were discussing what is now the Act—but I struggle with the concept of tax being unregistered. To me, a “tax unregistered” scheme is a scheme where people and their employers are not entitled to any tax relief at all. However, in this case, they clearly are entitled to tax relief so the term “tax unregistered” does not make a lot of sense in practice. Given more time, a more judicious term—I am not making a pun—could have been used for these circumstances.

[The Deputy Chairman of Committees (Baroness McIntosh of Hudnall) (Lab)]

My Lords, I do not know whether the noble Lord has come to the end of his remarks; it appears that he has. There is a Division in the Chamber. The Committee will adjourn for as long as it takes for noble Lords to vote—perhaps not less than five minutes and not more than 10—but we will go with the flow.

Covid-19 and the Courts (Constitution Committee Report)

Baroness McIntosh of Hudnall Excerpts

Wednesday 23rd March 2022 Grand Committee

[Baroness Taylor of Bolton]

That the Grand Committee takes note of the Report from the Constitution Committee COVID-19 and the Courts (22nd Report, Session 2019–21, HL Paper 257).

[The Deputy Chairman of Committees (Baroness McIntosh of Hudnall) (Lab)]

My Lords, the noble Lord, Lord Howarth of Newport, will be contributing to this debate remotely.

Queen’s Speech

Baroness McIntosh of Hudnall Excerpts

Tuesday 18th May 2021 Lords Chamber

[Baroness McIntosh of Hudnall (Lab) [V]]

My Lords, I congratulate the noble Baroness, Lady Fullbrook, on her maiden speech and very much regret that we have not been able to hear from the noble Baroness, Lady Fleet. I hope she will be able to address the House before too long.

Culture is listed as one of today’s subjects for debate, but the gracious Speech makes no reference to it. Of course, there is important legislation—notably the online safety Bill—coming from the department with “Culture” in its title, but culture in the wider sense, including the arts, once again has no place in the Government’s programme.

I return to funding for higher education and how it will affect the future of our hugely successful creative industries. In doing so, I remind the House of my interest as a deputy chair of the Royal Shakespeare Company and a trustee of the Artis Foundation.

The Government propose that funding to higher education courses in the C1 price group, including music, dance, drama and other performing arts, art and design and media studies, should be significantly reduced because they are not among the Government’s “strategic priorities”. This proposal is wrong-headed in so many ways that it is hard to know where to begin. The fact that the proposed reduction per student is not huge in cash terms is irrelevant. The wrong-headedness, so ably identified last week by the noble Lord, Lord Bichard, resides in the attitude behind the decision. If followed through, this proposal will reinforce the message that schools, parents and students themselves are already getting, because of the narrowing of the national curriculum, that these subjects are of less value, in every sense, than others.

The Government supported the recent decision of the Russell group of universities to abandon its facilitating subjects list, which by excluding arts subjects had such a damaging impact on their status. Now the Government seem to be facing in the other direction. Why?

Furthermore, the proposal is likely to widen existing inequalities in higher education, decreasing participation rates among students with disabilities and from lower socioeconomic groups. The Office for Students consultation document makes that clear. How can it be in line with the Government’s levelling-up agenda to cut funding to the courses most successful in attracting such students?

Finally, the proposal is incomprehensible when viewed in the light of what the Government have done for the cultural sector over the past year, which has been generous and life-saving. More than £1.5 billion has been invested in supporting arts organisations through the Culture Recovery Fund, and yet more through the Coronavirus Job Retention Scheme. Despite some problems, which have been mentioned already, such as the continuing impasse over the provision of cancellation insurance for live events, these interventions were enlightened and I gladly acknowledge their significance, but what is the point of spending all that money on protecting our cultural infrastructure while simultaneously signalling that the skills needed to create the work that they present, for which the UK is celebrated throughout the world, are not worth acquiring? Who do the Government think will be leading these organisations and keeping them alive in future if not students from the very programmes that the Government are now seeking to sideline through underfunding? This is bad politics, bad economics and, above all, bad education. I hope the Minister will encourage her colleagues at the Department for Education to think again.

Domestic Abuse Bill

Baroness McIntosh of Hudnall Excerpts

3rd reading
Wednesday 24th March 2021 Lords Chamber

[Lord Wolfson of Tredegar (Con)]

My Lords, I see the time and I hope the House will not think me discourteous if I respond very briefly. I am very grateful for the kind words of the noble Lord, Lord Rosser. He was quite right to remind us that the Bill had cross-party support. He was also right to remind me to thank—I fear that I did not, but I do now—the noble Lord, Lord Ponsonby of Shulbrede, who brought his experience as a magistrate in family matters to the attention of the House, which was very helpful in number of issues, and the noble and learned Lord, Lord Falconer of Thoroton, with whom I debated some of the legal matters. I apologise to the noble Baroness, Lady Burt of Solihull, for stealing her lines. I would put it this way: she reassured me that I was, in fact, correct when I said what I did.

The House benefited, as it always does, from the considerable experience and wise counsel of the noble and learned Baroness, Lady Butler-Sloss. I am sure we are all grateful to her. As for my noble friend Lady McIntosh of Pickering, I hope she will allow me to disagree with her when she said that she played a small part. She did not; she played an important part and, with that very important correction, I very much endorse what she said.

Last but certainly not least, if I may put it in those terms, to hear the noble Baroness, Lady Jones of Moulsecoomb, praise the Government is a wonderful thing. It shows that miracles do happen. I can assure her that the Government always listen, we just cannot always say yes. I hope noble Lords will forgive me for being brief, but I do see the time and I beg to move that this Bill do now pass.

[The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)]

My Lords, I have received a request to ask a short question of elucidation from the noble Baroness, Lady Uddin.

[Baroness Uddin (Non-Afl)]

My Lords, I thank the House for its leniency. I welcome the super register that has been proposed. I convey my thanks and respect to all noble Lords who have spoken in this debate. It has been my long-standing hope to participate in a small way in this debate, and an honour to have done so. I extend my thanks to the noble Baroness, Lady Williams, and the noble Lords, Lord Wolfson and Lord Parkinson, for their contributions and dedication to this cause. It has been much noted that the sisterhood across the House was incredibly powerful, and I wanted to state that. We have a common purpose in making real changes to the lives of survivors, so will there be a public information campaign to empower women with a message that our society has marked this day to say that we utterly reject violence against women? It is everyone’s business, as has been said, to begin the process of eliminating violence and abuse. It will send a very powerful message to all, around the world, that we intend to stand against violence and abuse in every form.

Bill passed and returned to the Commons with amendments.

[The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)]

My Lords, I believe it is the intention of the House to proceed straight to the next business, but we shall have a short pause for the rearrangement of Front Benches and so on.

Domestic Abuse Bill

Baroness McIntosh of Hudnall Excerpts

Report stage
Wednesday 10th March 2021 Lords Chamber

[Baroness Butler-Sloss (CB) [V]]

My Lords, I will speak to Amendments 31 and 85. I underline that domestic abuse services, which I very much support, should include victims being forced into marriage. I particularly have in mind the special needs of those being forced into marriage who are under the age of 18. I know that the Minister is well aware of the points that I am making. I am sorry to keep pressing them, but I want them on the record.

[The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)]

The noble Baroness, Lady Goudie, has withdrawn, so I call the noble Baroness, Lady Jones of Moulsecoomb.

[Baroness Jones of Moulsecoomb (GP)]

My Lords, having listened to other speeches from noble Lords, I realise that the comments that I have prepared are far too mild. I was just going to congratulate everyone who has campaigned and fought for proper provision and thank the Government for working constructively. It is not often that I find myself on the mild end of things. I think that there is now a clear understanding of the need for community services, including supporting survivors of domestic abuse in their own homes. I feel strongly that the abusers should have to leave and not the survivors. The Green group is very supportive of Amendment 85 from the noble Lord, Lord Rosser. I am sure that we will come back to it at another time in another place. In the meantime, well done everyone.

[Baroness Sanderson of Welton (Con)]

My Lords, it is an honour to follow the noble Baroness and her mild comments. I will speak to and welcome Amendments 17, 24 and 28. As we have said many times before, this was already a very good Bill. I thank the Government and particularly my noble friend Lady Williams for the lengths to which she has gone to improve it further. She has been unstinting in her determination to address many of the outstanding issues, always putting the victims’ needs first. With these amendments, I believe that the Government have addressed the potential unintended consequences of a two-tier system.

The Government are wary of specifying what the independent commissioner should and should not report on, and I agree with them. The Minister has also made the point that the commissioner is already undertaking the relevant mapping exercise. None the less, Amendment 17 sends a signal about the importance of community-based services. Together with the requirement for local authorities to assess the impact of the duty under Part 4 and the further requirement, via Amendment 28, for local partnership boards to advise on other local authority support, I believe that this provides a robust and, importantly, ongoing mechanism and structure for ensuring that community-based services are not adversely affected by the duty.

I welcome the Government’s commitment to consult on the provision of community-based services and congratulate my noble friend Lord Polak on all the work that he has done in this area. I also welcome the amazing number of charities and stakeholders that have welcomed these amendments. As I have said before, I understand why the Government cannot extend the duty in this Bill. On this issue and so many others, they have come forward with significant changes. They have moved where they can and altered their position in areas where we thought that they would not.

I realise that I am still relatively new to this House. I also realise that no Bill will ever be perfect and that noble Lords will fight for the changes that they think are right, but this Bill has cross-party support, and for very good reason. It will create a genuine step change in the way we tackle domestic abuse. It has already raised so much awareness. Someone who works on the front line said to me on seeing the raft of government amendments:

“You should see the amazing survivor messages I’m seeing this morning. I’m quite emotional seeing their excitement. We feel the tide is turning.”


The tide is turning but, as we all know, we have only a limited period to get this Bill through. I believe it is now up to us to bid it safe passage.

[The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)]

I call the noble Baroness, Lady Watkins of Tavistock. No? Perhaps we should hear from the noble Baroness, Lady McIntosh of Pickering, since she is with us.

[Baroness McIntosh of Pickering (Con) [V]]

My Lords, I will speak briefly in support of my noble friend the Minister and congratulate her on bringing forward this group of amendments. It shows that a serious issue has been raised and the Government have risen to the challenge and addressed it. It is extremely important, for the reasons that others have set out. I congratulate my noble friend Lord Polak and others on the work that they have done in bringing us to this place.

I will raise one concern with my noble friend the Minister, which was addressed by the noble Lord, Lord Hunt, and which I think we are all aware of. We are yet to assess the implications of the pandemic and the recent Budget on local government finances. I seek assurance from my noble friend because there is a genuine concern out there. I know that many authorities, such as North Yorkshire and many others in rural areas, prioritise the most vulnerable in society—young people, children and the elderly—but there is concern that their budget and resources are severely stretched. While I welcome the amendments, particularly government Amendment 17 and the others set out by my noble friend, we are entirely dependent on local authorities having the provision to make this happen. Is she entirely convinced that they will have the resources to enable them to do so?

[The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)]

My Lords, I should make it clear that the noble Baroness, Lady Watkins of Tavistock, has withdrawn from the debate, so we shall not be hearing from her on this occasion. I call the next speaker, the noble Baroness, Lady Finlay of Llandaff

[Baroness Finlay of Llandaff (CB) [V]]

My Lords, I should declare that I chair the Commission on Alcohol Harm. I added my name to Amendment 31 in the name of the noble Lord, Lord Hunt of Kings Heath, and the noble Baronesses, Lady Goudie and Lady Hollins. It is very welcome that the Bill will, for the first time, give local authorities a formal role in the provision of domestic abuse support. The voluntary sector has done a heroic job in protecting survivors, victims and their families, but this vital task should not be left to the voluntary sector alone.

The words of the Minister were welcome, reflecting her deep and sincere commitment to tackling domestic abuse. The government amendments recognise the need to ensure that regulation will meet need and are certainly to be supported. If I heard correctly, some of the additional finance will apply only to England. How will parallel community services be financially supported in Wales? Without that additional funding also coming to Wales, there will be a serious risk that women fleeing abuse will also have to flee Wales to get the support they need.

We must not ignore those outside refuges, some of whom are turned away due to their alcohol and substance-use needs, which makes them ineligible for support from their local authority. However, they still need support. The amendment of the noble Lord, Lord Hunt of Kings Heath, is needed in addition to the Government’s amendments. It would ensure that the necessary support is available and would support the whole scoping exercise without any discrimination. I really urge the Government to support it.

--- Later in debate ---

[Baroness Benjamin (LD) [V]]

My Lords, I will refer to Amendments 20, 22, 24 and 29.

I understand that the Minister has committed to consulting on community-based domestic abuse services as part of the victim’s law consultation this summer; that is extremely welcome. I thank the Government for this, and thank the noble Lord, Lord Polak, for his commitment to this issue. I also thank the Minister, who rightly responded to concerns raised by Barnardo’s—I declare an interest as the vice-president of that charity—and many other charities and organisations representing adult and child victims. As we know, children are often the hidden victims of domestic abuse. Can the Minister confirm that a statutory duty to deliver community-based services is a possible outcome to ensure that the majority of victims are supported in future?

[The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)]

The noble Lord, Lord Randall of Uxbridge, has withdrawn so I call the next speaker, the noble Baroness, Lady Primarolo.

[Baroness Primarolo (Lab) [V]]

My Lords, like the other speakers this afternoon, I welcome the Government’s amendments. However, I remain concerned about two matters, to which I will speak briefly; I will also ask the Minister to try to assure the House on them.

Many speakers have mentioned my first concern. Although having a statutory duty on local authorities to provide accommodation is welcome, if we do not deal with the question of community-based services, there is—as the noble Lord, Lord Hunt, said—a huge danger of money being transferred into the provision of the accommodation and away from such services. The Minister, who has done an excellent job on this Bill, has not explained clearly to the House why Amendment 30 in the name of the noble Lord cannot be accepted so as to protect these services in the interim while the commissioner undertakes her mapping exercise. If she is not prepared to accept that amendment, will she explain to the House what steps the Government will take to protect community-based services in the period when the mapping will be undertaken?

The second area that I want to refer to briefly is that of joint commissioning and the work being done in localities to provide these valuable services. The Minister touched on the lack of clarity over what this meant. I made inquiries of these services in Gloucestershire, a large county where localities have been undertaking community-based commissioning since 2013; this involves working across local authorities, health authorities, the police and crime commissioner and other services. The joint commissioning model has enabled them to offer far more women help than would be possible under an accommodation-based offer only. The service, they tell me, has taken referrals for 6,000 women in the past year, whereas an accommodation-based model would not have been able to deal with more than around 100 a year.

When we understand this perspective of the importance of community-based services and how they support victims and their families, it is incumbent on the Minister to explain why she is not prepared to take the route of Amendment 85. In Gloucestershire, the emphasis is on safely keeping victims in their homes, allowing them to maintain family and community networks and avoid isolation, and enabling their children to stay connected to their school friends. These are clear objectives that can be distilled in demonstrating what a community-based model looks like. The services also offer places of safety through a scheme in which they provide safe accommodation in the form of individual properties for victims and their families, who can access this accommodation alongside outreach support.

We are talking about specialist services that are there to support victims of domestic abuse aged 16 and over. They provide help desks, phone lines, specialist group work and independent domestic violence advisers to support victims in the courts. They provide independent advisers to support young people and encourage them to confront the perpetrators and the type of behaviour that is developing. They also work with the health services and GPs to identify domestic abuse and respond to it rapidly.

This model is not unique to Gloucestershire. The Government have enough to make provisions in Amendments 30 and 85 to move us forward. This does not mean that the services will be available tomorrow, but it does mean that we understand what types of services are necessary. Even at this late stage, with the excellent work that has been undertaken by many noble Lords in this area, I sincerely hope that the Government will think again, give a much clearer lead on the pathway to deliver jointly commissioned community-based services and make the provision of such services a statutory duty.

--- Later in debate ---

[Baroness Williams of Trafford (Con)]

My Lords, the noble Baroness, Lady Burt, is absolutely right to say that peace has broken out, but I do not think that your Lordships were ever at war. We have all been seeking the same ends. This has been a good and succinct debate—long may that last—and from what several noble Lords have said I know that they will keep a close eye on developments over the next few months.

The noble Baronesses, Lady Jones of Moulsecoomb and Lady Primarolo, made specific points about perpetrators being brought to book and that victims should be able to stay in their own home. The importance of community-based services for the victims of domestic abuse and their children is unquestionable. We share noble Lords’ ambitions to see all the victims of this terrible crime being supported.

It might assist the House if I briefly recap the Government’s reasoning on why now is not the appropriate time to legislate on this issue. I shall return to the point made by the noble Lord, Lord Hunt. The current landscape is complex. Unlike accommodation-based services, those in the community are funded and commissioned not only by PCCs but by local authorities and clinical commissioning groups. Further, as another noble Lord said, the third sector is prominently involved in this. Introducing an undeveloped statutory duty in the Bill would run the risk of cementing in legislation a complex landscape that we are working hard to simplify. Equally, placing the duty on only one of these public bodies would be to risk legislating for responsibility in the wrong place. This is far too important an issue on which to legislate in a rush.

Several noble Lords, including the noble Lords, Lord Hunt and Lord Russell, the noble Baronesses, Lady Primarolo and Lady Burt of Solihull, and my noble friend Lady McIntosh talked about the funding behind this, which is crucial. In fact, it has gone to the heart of the position taken by the Government. We must understand fully the cost of such a duty before we can implement it. The MHCLG duty has been funded at a cost of £125 million, so any action around community-based services must be funded appropriately. As I have said, significant government funding is already provided for these services, with an additional £17.7 million for them having been announced only last month. The results of this funding will be a further crucial piece of information to help us understand further need. I agree with the noble Baroness, Lady Jones of Moulsecoomb, and others that funding for the commissioner also has to be in place.

The noble Baroness, Lady Finlay, asked about the position in Wales and Amendment 17 placing a duty on the domestic abuse commissioner to prepare and publish a report under Clause 8 on the provision of domestic abuse services in England. As with the provision made in Part 4, we have limited the duty to the provision of these community-based services in England in recognition that generally we are dealing here with devolved matters in Wales. However, the noble Baroness is absolutely right to ask the question. We recognise the concerns raised by noble Lords, which is why we have tabled amendments to demonstrate our commitments in this space.

The statutory duty on the domestic abuse commissioner to publish and lay before Parliament the Clause 8 report on the provision of and need for community-based support services, and the statutory duty on tier 1 local authorities to monitor and report on the safe accommodation duty on the provision of community-based support in their area, will together ensure that the Government have all the information they need to protect and support safe accommodation and services in the community. In addition, I have committed today to consulting this summer on a statutory duty around community-based services in the upcoming victims’ law consultation. This is a commitment to explore precisely the issues that noble Lords have highlighted in this debate. It will give us the time to do them justice. To rush legislation now would, as I have said, risk solidifying into statute the wrong framework and accountability mechanisms, as well as the wrong arrangements for ensuring that responsible public authorities collaborate to ensure that victims receive the services that they need.

We also cannot take a shortcut with a regulation-making power, as suggested by the noble Lord, Lord Hunt. As I said in my opening speech, your Lordships’ House does not like the kind of skeletal powers that would be provided for in Amendment 31. Any new duties in respect of community-based support should be set out in primary legislation, as we have done for accommodation-based support in Part 4. This issue must be given thorough and thoughtful consideration. We will use the consultation to interrogate fully the current landscape of community-based services and to develop effective proposals on how we might ensure that it remains robust and effective in order to give all victims access to these vital services.

My noble friend Lord Polak pointed to the fact that Amendment 85 also seeks to make provision for perpetrator programmes. I agree entirely that more is needed here. The noble Baronesses, Lady Primarolo and Lady Jones of Moulsecoomb, also talked about the issue. I will set out our plans in this area when we come to debate other amendments tabled by the noble Baroness, Lady Royall, and the noble Lord, Lord Strasburger. The needs of victims and perpetrators are clearly of a different order, but we recognise that both issues need to be addressed. However, we are not persuaded that they should be conflated in a single provision such as that provided for in Amendment 85.

I turn finally to Amendment 30. I say to the noble Lord, Lord Hunt, that for the reasons I have explained, we would not expect local authorities to give priority to accommodation-based support services over community- based services, so the circumstances addressed in the amendment should not arise. In response to his question, once the new duty under Part 4 becomes law the public sector equality duty will apply to local authorities in delivering their functions under it.

In assessing needs, local authorities will consider the differing requirements of all victims. This goes to the point made by the noble Baroness, Lady Fox, because that will include those with relevant protected characteristics under the Equality Act 2010, as well as victims who might come in from outside the specific local authority area. As set out in the draft statutory guidance, tier 1 local authorities should make it clear in their strategies how they plan to make support services available that will meet the needs of all victims. The strategy should set out the support needs that have been identified as part of the local needs assessment, along with a clear breakdown of the differing needs of victims’ groups such as, but not limited to, those from BAME backgrounds or who identify as LGBT, and how they will address the barriers faced by victims with relevant protected characteristics and/or multiple or complex needs. I hope that that will answer the point put by the noble and learned Baroness, Lady Butler-Sloss.

We want the same outcomes here. I think and hope that the road map that I have set out, underpinned by our amendments, has reassured noble Lords that the Government are committed to taking this issue forward at pace. I therefore ask the noble Lord, Lord Hunt, not to move his amendment. I thank all noble Lords for taking part in what has been an incredibly constructive debate and I hope that these government amendments will be universally supported.

[The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)]

I have received a request to ask the Minister a short question from the noble Lord, Lord Hunt of Kings Heath.

[Lord Hunt of Kings Heath (Lab) [V]]

My Lords, I want to ask the Minister a couple of quick questions. The first relates to the additional money she mentioned today and in Committee that is going to local authorities to help to implement the legislation. Given what the NAO has said this morning, is she confident that local authorities will actually spend the money in the areas in which the Government wish them to? Secondly, on the question put by the noble Baroness, Lady Fox, about the jeopardy that women-only spaces in refuges are coming under because of local authority commissioning policies, will the Minister remind those authorities of the need to implement fully the Equality Act 2010 and not try to reinterpret it?

Amendment 17 agreed.

[The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)]

We come now to the group consisting of Amendment 18. Anyone wishing to press this amendment to a Division must make that clear in debate.

Clause 37: Breach of order

Amendment 18

Moved by

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Given what I have said this afternoon and my clear commitment to follow up on this debate with the President of the Family Division and the chief executive of Cafcass, I hope that, despite the comments that she made in her speech introducing the amendment, the noble Baroness, Lady Finlay, will be content to withdraw it.

[The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)]

I have a request to ask the Minister a short question from the noble Baroness, Lady McIntosh of Pickering.

[Baroness McIntosh of Pickering (Con) [V]]

My Lords, may I address head on two points that the Minister has raised? First, the case has been made of how difficult it is to access the evidence and whether it is in the public interest to put this in the public domain. This is an extremely sensitive area and we have done our best to provide the evidence on the two occasions when my noble friend has requested it. Secondly, there is a legislative loophole. The Government undertook to come forward with regulations to establish the regulatory framework to set the standards in place and they have failed to do so. For what reason have the Government not brought forward these regulations and why are they not prepared to bring them forward at this time? I am at a loss to understand why that is the case.

--- Later in debate ---

Amendment 22 agreed.

[The Deputy Speaker (Baroness McIntosh of Hudnall) (Lab)]

We now come to the group consisting of Amendment 23. Anyone wishing to press this amendment to a Division should make this clear in debate.

Amendment 23

Moved by