Domestic Abuse Bill

Baroness Warwick of Undercliffe Excerpts

Report stage
Monday 15th March 2021 Lords Chamber

Given the complexities of getting the drafting absolutely correct, especially as regards third-party and property interests, the path through consultation is acceptable, provided that the Minister will give absolute guarantees that this is to be completed within months and that the opportunity is seized in the next appropriate Bill to insert this amendment. I believe that a renters Bill is on the horizon which would provide a good vehicle. I understand also that the consultation can take place swiftly, but so often it is the response from the Government that drags these things on. We do not consider it a good idea to wait to see how a similar provision is working in Scotland. I have heard the “Let’s wait for Scotland” excuse so often in relation to other proposed reforms that it always puts me in mind of “Waiting for Godot”. I hope that the Minister will accept this way forward and put strict time limits on any consultation. I will seek to divide the House on this amendment.

[Baroness Warwick of Undercliffe (Lab) [V]]

My Lords, I wish to speak to Amendment 87C and to support all the arguments made so powerfully by the noble Baroness, Lady Deech. I declare an interest as the chair of the National Housing Federation, which is wholeheartedly behind this amendment as a means of protecting families and providing survivors with a choice to determine their own future.

Some very strong arguments were made in Committee on joint tenancies and those of us supporting this amendment were grateful for the opportunity to discuss the arguments with the Minister. I know that he is sympathetic to what we are seeking to achieve. I hope that he will focus on the need for what is called a “whole housing approach” to improve the housing options and outcomes for people experiencing domestic abuse so that they can live independently in a safe and stable home as a first step to overcoming abuse and its devastating impact.

Rather than repeating the points I made in Committee, I want to focus on what can be done by housing associations and social landlords to support those suffering abuse, since they are well placed to recognise the signs in their residents, including economic abuse, which create pressure on their tenancy. Case studies gathered by the National Housing Federation show the impact that housing officers with the right training can have in identifying domestic abuse. I will give just one case. During a meeting to discuss rent arrears, a housing officer adopting what is called a “trauma-informed approach” was able to identify the signs of abuse and became the resident’s main source of support, including during a police investigation, working with adult and child social care to ensure that the resident had access to all the help they needed. The resident was able to retain their tenancy, and in this case the abuser did not resist the change. In fact, they chose to relocate from the property linked to the abuse and, 18 months later, the housing officer continues to support the resident. In this instance, the survivor was successful in achieving what she needed and had a choice. In so many instances where there is a joint tenancy, this is not possible. As was said in Committee, the perpetrator must agree to the transfer of the tenancy if the survivor wishes to remain in the family home as the sole tenant. There are so many instances where he—and it is usually he—refuses.

Social housing providers have no legal mechanism to evict the perpetrator. This amendment, carefully crafted, allows the joint tenancy to be transferred in a simplified way to a sole tenancy. As we have heard, it is a more modest measure than that already proposed in Scotland, and I hope the Minister will consider that when he comes to reply. I know that he will listen carefully to this debate. We know that he is sympathetic to what we want to achieve and I hope he will accept this modest but far-reaching amendment.

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

My Lords, it is always a pleasure to follow the noble Baroness, Lady Hamwee. I agree with everything she and the previous speakers, particularly the right reverend prelate Bishop of Gloucester, have said. These two amendments follow on from Amendment 67, and it really is time that the Government at last implemented the Istanbul convention without reservations, treated all victims of domestic abuse equally and made provision for those subject to immigration control to have a route to make the appropriate applications. The Government would retain control, but it would at least give these people, who are not married, or not treated as married, a possible route to remain in this country—without having certainty of it, which would remain in the hands of the Government.

Without these amendments, like with Amendment 67, there is a danger of serious discrimination against groups of victims and the creation of a flawed piece of legislation negating much of what would otherwise be, as so many people have said, a landmark Act. I add that the pilot project is just delaying an important and necessary decision.

[Baroness Warwick of Undercliffe (Lab) [V]]

My Lords, I declare an interest as the chair of the National Housing Federation. I will not repeat what I said in Committee on this issue. Suffice it to say that migrant women are particularly vulnerable in an abusive situation because their insecure immigration status can be used as a tool against them. They often cannot access refuges or other safe accommodation because they have no recourse to public funds.

Women’s Aid, whose excellent briefing I acknowledge, considers that the Government may be in breach of several articles of the European Convention on Human Rights and in breach of the Istanbul convention obligations because they have failed to ensure that survivors with insecure immigration status can access equal support for and protection from domestic abuse. Assurances by the Minister in Committee that

“the Secretary of State is taking steps to ensure effective protection and support for all victims of domestic abuse”—[Official Report, 8/2/21; col. 99.]

have not convinced anybody. Amendment 70 provides a way through by regularising survivors’ immigration status irrespective of whether or not they are on a spousal visa, and by extending the destitute domestic violence concession from three months to six months to underpin that.

In Committee, the Minister was reluctant to extend the rules in this way because it would undermine their original purpose. That rather begs the question of whether the original purpose was sufficient, and the trenchant points made by the right reverend Prelate the Bishop of Gloucester and all the evidence from migrant survivors suggest that it is not. It also begs the question: how do the Government otherwise propose to assure the International Agreements Committee that they are fulfilling their obligations under the Istanbul convention, when all those most closely involved can show quite clearly that they are not? I would appreciate it if the Minister would address both these points directly in her response.

[Lord Lansley (Con)]

My Lords, I am glad to have this opportunity to follow the noble Baroness, Lady Warwick, who referred to the International Agreements Committee, on which I have the privilege to serve. We considered the question of the ratification of the Istanbul convention. The noble and learned Lord, Lord Goldsmith, the chairman of that committee, will have an opportunity to contribute to the debate in a few moments, so I will not pre-empt what he has to say by way of an authoritative description of the committee’s views.

I want to add just three points. First, the Istanbul convention was signed by the coalition Government in 2012, a Government of which I was then a member. We would not have anticipated then that it would have taken so long for it to be ratified or that there would have been any difficulty in respect of non-discrimination in achieving that. I am glad the Government are bringing forward Clauses 66 to 68 to enable the extraterritorial jurisdiction measures to be dealt with. Surely now is the time and this is the Bill to take ourselves to the point where we can ratify.

Secondly, a number of us in your Lordships’ House served in the other place and realise what it takes to get as many as 135 Members of Parliament to turn up on a Friday morning to support a Private Member’s Bill, but that is what happened on 24 February 2017 to support what is now the Preventing and Combating Violence against Women and Domestic Violence (Ratification of Convention) Act 2017. There is a tendency in government to say, “Well, that was just a Private Member’s Bill.” No, it is an Act of Parliament that requires Ministers to set out in a Statement to the House when they have a timetable for ratification and, in the absence of such a timetable, to report annually on the situation. Back in 2017, the 135 Members who turned up on a Friday morning to support that Bill and turn it into an Act would not have expected that there would have been four annual reports, with no resolution yet in sight and no timetable published by the Government. The evidence from this House and, indeed, the other House, is that Parliament expects that to happen.