Domestic Abuse and Homelessness

Debate between Carolyn Harris and Neil Coyle

Wednesday 12th June 2019 Westminster Hall

[Neil Coyle (Bermondsey and Old Southwark) (Lab)]

I beg to move,

That this House has considered domestic abuse and homelessness.

It is a pleasure to serve with you in the Chair, Mr Davies, and I thank everyone for coming this morning. I particularly thank all the organisations that provided briefings for this debate, and all the individuals who have provided their personal experiences and stories to help us make the case for improving the law to prevent people affected by domestic abuse from ending up homeless. The case is harder to make without that experience and those statements, so I am grateful for their input.

I speak as the Member of Parliament for Bermondsey and Old Southwark, and as the chair of the all-party parliamentary group on ending homelessness. Last week we published our report on this issue, entitled “A Safe Home: Breaking the link between homelessness and domestic abuse.” I thank the Minister and many colleagues for attending the launch, and everyone who has signed up to this campaign already. The campaign we are running is supported by many organisations, including Crisis, Women’s Aid, Refuge, St Mungo’s, Shelter, the Domestic Abuse and Housing Alliance, Homeless Link, Changing Lives, Hestia, Centrepoint, Depaul UK, the Chartered Institute of Housing, The Connection at St Martin’s and Surviving Economic Abuse. There is a huge platform behind the campaign, and my thanks go to all the organisations and individuals that have already signed up. The report and materials linked to it are on the Crisis website.

We hold this morning’s debate in the context of a change in Prime Minister and Government. I hope whoever next enters Downing Street, and whatever team they bring together, will not slow down the Domestic Abuse Bill and will accept the aims of our campaign. We have an evidence base that clearly demonstrates the need to improve housing support for survivors of domestic abuse. Some people get no help at all, and even those who can access emergency short-term hostels and refuges face huge and often insurmountable barriers to long-term safe homes. Too many people are being let down, having their lives further damaged and facing further isolation and risk. Sadly, that is today’s grim reality. However, we have a crucial window of opportunity to address this significant concern. I hope the Government will indicate today that they will act quickly, using the Domestic Abuse Bill as the vehicle for change.

The national evidence base is worryingly extensive and paints a grim picture of the current situation. I shall go through some key stats to inform this morning’s debate. Research carried out by Crisis found that 61% of women and 16% of men had experienced violence or abuse by a partner. Many of the men affected are from the LGBT community, but the vast majority of people affected are women. One in five of Crisis’s clients who are women report that domestic abuse was the primary cause of their homelessness.

Some 53% of survivors supported by Women’s Aid’s No Woman Turned Away project were prevented from making a valid homelessness application by their local authority. The project provides additional support to women who struggle to access refuge places, but nearly a quarter of the women involved were prevented from even making a homelessness application, as they were told upfront by councils that they would not meet the threshold for priority need.

According to official statistics, 1.6 million women and 695,000 men experienced domestic abuse in England and Wales last year. Domestic abuse is inextricably linked with housing; most abuse occurs at home, and a lack of alternative housing is a key barrier to people escaping domestic abuse. The latest Government statistics, for 2018, show that 5,380 households were made homeless in England over a three-month period because of domestic abuse.

It is vital that victims are given a clear, safe route out of abusive and potentially life-threatening situations, and offered long-term stability. Currently, this is simply not available, but it is a situation that could be easily fixed. Without that fix in place, such abuse has contributed to some horrendous circumstances. One extreme example that was brought to the attention of the APPG on ending homelessness in 2017 was of a woman who was made homeless when her relationship ended after a neighbour contacted the police following a two-day assault by her partner. Despite the clearly visible bruising and a letter from her partner admitting the abuse, she was told by her council that she needed to provide further evidence of her vulnerability and that she was not in a priority need situation. She ended up sofa-surfing for two years.

Sadly, I have also seen evidence in my own constituency surgeries in Bermondsey and Old Southwark. It has been four years since I was first elected in May 2015—I see some other Members from the 2015 intake present this morning—and the casework that I have seen over those four years is something I am desperate to change. I am desperate to be in a position where we can actually reform the situation so that people do not end up in these circumstances.

[Carolyn Harris (Swansea East) (Lab)]

It is a pleasure to serve under your chairmanship, Mr Davies. I congratulate my hon. Friend on securing this debate. The link between being a victim of domestic abuse and homelessness is undeniable, and the draft Domestic Abuse Bill will be an opportunity to change that. Currently, one person can end a dual tenancy, which means a victim can effectively be left homeless. Does my hon. Friend agree that this must be changed, and that we must ensure that it takes two parties to end a tenancy?

[Neil Coyle]

Of course, no one should end up homeless as a result of a decision made by someone else. The changes we are seeking would aim to address exactly those kinds of circumstances: domestic abuse situations in which there is a coercive or controlling partner who would do something like that.

Let me return to my casework in Bermondsey and Old Southwark. In four years, I have seen six women with children made homeless as a direct result of abuse. Those are just the women who have managed to come to my surgery sessions—not everyone will find their MP in such circumstances. Cases that I have seen include one mum who was told to sleep in Walworth police station with her children, rather than return to her abusive partner.

A pregnant woman with a one-year-old son recently came to see me. She was forced to sofa-surf following an incident of domestic violence by her ex-partner. She is not yet 18, so there is additional difficulty in trying to find alternative emergency shelter that caters for under-18s. Last year I met a mother with a five-year-old daughter who was made homeless after being kicked out by the abusive father, who dragged her out of the house half-naked. She was under hostile environment conditions, with no recourse to public funds, and was forced to sofa-surf before further intervention eventually helped secure a home. “No recourse to public funds” conditions used to cover only people who were in this country illegally, but they were extended by Cameron and Clegg’s coalition Government and now affect more than 50,000 British-born children in the UK. The APPG on ending homelessness recommends that no one with dependants is prevented from accessing public funds, as this has directly contributed to people staying with abusive partners, ending up with sex-for-rent landlords, or being forced into rough sleeping and homelessness.

Disturbingly, I have had brought to my attention instances of vulnerability being heightened after someone has sought official support or help. Women forced to stay with abusive partners have been told to go back to their partners to collect ID, or to prove abuse. One example came to the APPG on ending homelessness two years ago. A domestic abuse survivor got an injunction against her husband, who had threatened to kill her and take away her son. He broke the injunction and was put on bail. Her new address was revealed to him in his letter of probation, despite her being relocated due to the risks he posed. Despite the previous history of abuse, her council deemed her not to be at high risk and she was forced to remain in the same property, living in fear.

Despite all the well-documented evidence nationally, the problem persists. If anything, it is growing due to the strain on local authority resources. The Prime Minister— I know it is about to change—claimed austerity was over. That is certainly not how it feels on the frontline in council offices, or to people who seek emergency help. Of course, we are meant to have seen a change under the Homelessness Reduction Act 2017. We should not deny that that legislation has been successful in some ways, but a key loophole has opened up that councils use to deny help. The context is important, and we all have examples of what councils have lost, particularly since 2010—being starved of resources. My council has lost half its funding from central Government.

On top of losing funding, many councils have had additional responsibilities placed on them, putting further pressure on limited resources. That includes the families of parents who are subject to “no recourse to public funds” conditions. It is estimated that, last year, London councils provided £53 million of help to that group alone under what is supposed to be emergency children’s social services provisions. Southwark is disproportionately affected, and is forced to provide more than £6 million of support for families in those circumstances alone.

More positively, the Homelessness Reduction Act means that local authorities have a legal duty to provide meaningful support to everyone who approaches them as homeless. They must provide support to prevent people from becoming homeless and to find a home for those who are already presenting as homeless. Despite that welcome change, there is no guarantee that people fleeing domestic abuse will receive an offer of settled housing if the other options fail.

New research in the report published last week by the ending homelessness group reveals that almost 2,000 households fleeing domestic abuse in England every year are not being provided with a safe home by their local authority because they are not considered a priority need. That research was conducted after the Homelessness Reduction Act was introduced, which shows that there is a key weakness in this area. Of course, 2,000 households is not a huge number in Government terms, so extending automatic priority need to that group would not result in a new or significant burden on councils. It would, however, have a hugely positive and significant impact on the lives of the people fleeing dangerous and potentially life-threatening situations, who currently face the further devastation of homelessness.

Karen became homeless after suffering shocking violence at the hands of her partner. These are her words:

“It went from punching and kicking to trying to slit my throat, stab me in the stomach, splitting my head open, putting a cigarette out on me, pushing me through a glass coffee table, battering me with a table leg and the final straw was when he tied me to a chair and put my feet in a bowl of water he then plugged a car battery charger in and threatened to electrocute me. I knew I had to get myself and my girls out of there.”

She managed to escape her partner and was found a new home with her children, but she bumped into her ex a year later and the abuse began again. Eventually, social services got involved and her children were taken into care, at which point she was evicted because she was deemed no longer to have priority need. She and her partner ended up sleeping rough. She told us:

“We slept in empty garages, shop doorways, bus shelters even under railway bridges. I had given up on life at this point and didn’t care if I lived or died.”

It was only when her partner died from an illness caused by addiction that she finally felt free to save herself.

Our research shows that, despite the new prevention and relief duties under the Homelessness Reduction Act, survivors are still being found to be not in priority need for the main homelessness duty of settled long-term accommodation, and councils are still simply turning people away. The Government’s recent commitment to place a statutory duty on top-tier local authorities to assess and meet the need for emergency accommodation-based support services for people experiencing domestic abuse is welcome. Our group, and other organisations and all-party groups, have welcomed that, but we have done so with a significant reservation: the commitment falls short of providing people with the safety and security of a permanent long-term home. That is the problem that we are trying to address.

Currently, unless a person experiencing domestic violence can prove that they are more vulnerable than an ordinary person would be if they became homeless, they are not defined as being a priority need or eligible for an offer of settled housing.

Experience shows that domestic abuse in isolation is rarely considered sufficient to qualify someone as being in priority need, particularly if they do not have dependent children. In 2017, Ministry of Housing, Communities and Local Government stats showed that only 2% of the people found to be in priority need and made an offer of settled housing were given housing because they were vulnerable as a result of domestic abuse.

Of course, it can be hugely stressful for a survivor to prove that they are homeless due to domestic abuse. During the all-party group’s inquiry into domestic abuse and homelessness in 2017, we heard evidence of local authorities consistently failing to provide people fleeing domestic abuse with the help they need. We also heard that the vulnerability test is being used as a gatekeeping tool to deny access to services and support. We also heard accounts of survivors being told to return home to a dangerous situation to retrieve ID or other evidence to prove that they were homeless due to domestic abuse. One woman told us that she was told to return home to get a letter from the perpetrator stating that he had raped and attacked her. Those situations must end, and we have the means to do it.

Crisis’s “No One Turned Away” research found that many local authorities are failing adequately to assist people presenting as homeless due to domestic abuse, and that there is often a lack of sensitivity when dealing with survivors. There are accounts of people being asked to recount experiences of abuse and violence in public, often in crowded housing office waiting rooms, or being asked to return to the perpetrator. That must end, and we have the means to do that.

We do not come to the Chamber empty-handed. The campaign believes that everyone who experiences domestic abuse is by definition vulnerable and should be placed in the automatic priority need category. We call on the Government to ensure that the Domestic Abuse Bill makes provision to ensure that all survivors of domestic abuse have access to a safe, long-term home. We ask that everyone fleeing domestic abuse who is homeless be automatically considered as in priority need for settled housing, rather than subject to the vulnerability test to determine whether they qualify. Without that change, people who are homeless due to fleeing domestic abuse will still be required to prove additional vulnerability, which can be impossible. Our findings show that almost 2,000 people in those circumstances are denied help.

Those are the aims of the campaign and today’s debate. We have even tabled amendments to the draft Domestic Abuse Bill that I hope the Government will accept. I hope the Minister can give us an indication about that this morning. I thank the housing team at Garden Court Chambers—especially Liz Davies—for their work on the amendments. For those who need a copy of the amendments in full, they are on pages 26 and 27 of the all-party group report. The “A Safe Home” campaign report, published last week, is on Crisis’s website.

If the Minister has any reservation about the amendments, I hope she will air them here so we can move forward and improve them. The Government can, of course, adapt or adopt the amendments or introduce their own proposals. I really hope we will hear something positive from the Minister. I thank other hon. Members in this Chamber in advance. I know that they have worked on this issue for many years and will bring a wealth of experience to the debate.