Domestic Abuse Bill

Debate between Lord Hunt of Kings Heath and Lord Marks of Henley-on-Thames

Report stage
Wednesday 10th March 2021 Lords Chamber

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

My Lords, I warmly commend the sterling efforts of the noble Baroness, Lady Newlove, to see the introduction of new offences of non-fatal strangulation or suffocation. The noble Baroness generously mentioned a number of organisations and people who have helped her but she deserves huge credit for the way in which she has championed this action, which I am delighted to see in today’s amendments.

The noble Baroness’s speech was very powerful. The statistics that she shared with us about the relationship between strangulation and sex were shocking but, as she said, it goes much further beyond that as well. Indeed, she has explained at previous stages of the Bill that non-fatal strangulation and suffocation have the unique characteristic of being extremely harmful physically and psychologically but often with no external physical signs. Because of the lack of observable injuries and the lack of understanding of the seriousness of the offence, strangulation when charged is generally pursued as a summary offence of common assault in the magistrates’ court. Undercharging limits sentencing options, and a summary offence also deprives the victim and the defendant of the greater resources and attention devoted to a Crown Court prosecution. Without the establishment of a separate offence, those unique characteristics mean that more victims would suffer and be killed in future.

The amendment tabled by the noble Baroness, Lady Newlove, creates a new criminal offence of strangulation or suffocation. The offence will apply where a person intentionally strangles another person, but it will also cover a range of behaviours, including suffocation and other acts that affect the person’s ability to breathe and which amount to battery. Alongside the new offence must go training and strong guidance to police forces and other statutory agencies about how it is to be implemented, but today is a very significant step forward. I am grateful to the Government for responding to the noble Baroness, Lady Newlove, and I warmly welcome the amendments.

[Lord Marks of Henley-on-Thames (LD)]

My Lords, I too welcome the amendments. I welcome the new offence of non-fatal strangulation and suffocation. I echo the noble Lord, Lord Hunt of Kings Heath, in saying that this is a very significant achievement for the noble Baroness, Lady Newlove. As she generously said in opening the debate, many have helped to bring this new offence to the statute book, but she has been the driver throughout. This has not been for herself; her motivation has been to relieve the suffering of victims.

We on these Benches have given the noble Baroness our wholehearted support throughout. It was always an extraordinary anomaly that non-fatal strangulation was not a specific offence. As discussed in Committee, cases of strangulation were generally charged, and therefore sentenced, as assault occasioning actual bodily harm at most—for the reason, which she explained, that they often left little or no mark. The result was that strangulation and suffocation were undercharged and underpunished, and indeed often not punished at all. That was all despite the appalling truth that strangulation was so much the marker of more generalised domestic abuse, and despite the tragic fact that so often it turned out be a predictor of future killing.

I am very grateful to Ministers for engaging with so many of those concerned with the promotion of these amendments. The noble Lord, Lord Anderson of Ipswich, and I had the opportunity to discuss the legal aspects of the new proposed offence with Ministers, and the Government quickly saw the strength of the argument for a specific offence. It is a credit to Ministers that, after initial hesitation, they decided to include the new offence in the Bill and resisted the temptation to put it off to a future date. Because of the strong connection with domestic abuse, it is an offence that sits clearly within the Bill, but it was the right decision to work on this with the speed that we have. That decision must have saved many victims from further serious harm and has almost certainly saved lives.

It is right that the new offence is of general application, not just limited to domestic abuse. It would not have been appropriate to confine it to cases within the statutory definition of “domestic abuse” contained in the Bill, despite the overwhelming majority of cases falling within that category. That is because all cases of strangulation or suffocation are required to be treated as specific offences, for the reasons that I mentioned earlier.

I am grateful for the advice of Professor David Ormerod, the former criminal law commissioner at the Law Commission, for his help with the drafting. He changed my view on the consent issue; I had originally been of the view that consent should be no defence, but it is right that there is a defence of consent—to cover, for example, cases of sporting contests that lead to injury—provided that serious harm was unintended. That proviso is elegantly drafted in the amendments before us. I know the Government are also grateful for the generosity with which he gave his advice, and for the advice of the Law Commission.

In my view, the broad definition of “serious harm” in proposed new subsection (6) to include actual bodily harm is right. It will be less difficult to prove, in cases of both physical and psychiatric injury, than if the only harm that met the required criteria were those for grievous bodily harm or wounding offences under Sections 18 and 20 of the Offences against the Person Act. It is also right that the new offence has extraterritorial application under the new Section 75B, and we welcome that.

I commend the Government on behalf of these Benches for their comprehensive and well-modulated response to this new offence, and to the amendments by the noble Baroness, Lady Newlove. I congratulate her once again. It is a victory for her but also for the many victims of this horrible crime. It is to be hoped that this provision will ensure that many others are spared both strangulation offences and the possible escalation to fatal violence thereafter.

Domestic Abuse Bill

Debate between Lord Hunt of Kings Heath and Lord Marks of Henley-on-Thames

Committee stage & Committee: 1st sitting (Hansard) & Committee: 1st sitting (Hansard): House of Lords
Monday 25th January 2021 Lords Chamber

[Lord Marks of Henley-on-Thames (LD) [V]]

My Lords, the Committee has every reason to be grateful to the noble Baroness, Lady Finlay, and the others who have tabled amendments in this group. We will all be grateful to the Government if they secure a positive response. It is not enough to thank the movers for the amendments, to acknowledge their importance and express concern, but not accept them. That would be an inadequate response. The symbiotic link between substance abuse, mental health issues and domestic abuse is so strong and all-pervading, as the noble Baroness has explained, that it needs to be specifically recognised in this legislation and met with positive statutory commitments to take every step that we can to ensure that the link is recognised and, as far as possible, addressed.

In May 2019, in a paper called the Dynamics of Domestic Abuse and Drug and Alcohol Dependency, published in the British Journal of Criminology, a group of distinguished academics drew together the literature on these issues in connection with the precursor of this Bill. They cited

“the findings of domestic homicide and serious case reviews … which reveal the pertinence of a ‘toxic trio’ of domestic abuse, mental health issues and drug and alcohol problems in cases where women or children are killed”,

and considered

“how substance use features in around half of intimate partners homicides in the United Kingdom”,

according to Home Office figures. They pointed out that the Government’s consultation paper

“Transforming the Response to Domestic Abuse followed suit, highlighting the ‘complex needs’ of those living with ‘drug and alcohol misuse, offending, mental illness and poverty’”.

The American Society of Addiction Medicine cites studies showing that victims and abusers are 11 times more likely to be involved in domestic violence incidents on days of heavy substance abuse, and that domestic abuse against women who are with men who drink alcohol is up to four times more likely than in relationships with men who do not drink or take drugs. World Health Organization figures suggest that 50% of men accused of killing their spouses were drunk at the time.

Research led by Professor Seena Fazel, professor of forensic psychiatry at Oxford University, and published by the Public Library of Science, tracked 140,000 men who had been clinically diagnosed with a drink or drug problem and analysed how many had been later arrested for domestic abuse offences. For those dependent on alcohol, the figure was six times higher than the average; for those with a drug problem, the figure was seven times the average. The study also found an increased risk of partner violence among men with mental illnesses and behavioural disorders, and an interrelationship between mental disorders—particularly ADHD, personality disorders and clinical depression—and the use of drugs as coping strategies, as well as with the perpetration of domestic violence, hence the description of the “toxic trio”.

No one is suggesting that substance abuse is or ever can be an excuse for domestic abuse. However, the relationship between the two is undeniable. It does, of course, work both ways, on victims as well as abusers. The British Association of Social Workers, in its extremely well-presented guide for social workers, Substance Use and Domestic Abuse, cites research demonstrating that victims of physical or sexual domestic abuse have an increased likelihood of alcohol or drug abuse, but it also points out that the substance abuse may predate the abusive relationship. It says this about the position of victims:

“For some victims of abuse, during times of turmoil, substances may be the only constant in their lives that they can depend on. Perpetrators may also use substances to control their victims, in such ways as limiting victim’s access to substances, demanding sex for substances, or using substances as an apology after an abusive episode. Among victims of abuse, the relationship with their partner may be intertwined with their relationship with substances, making separation more complex.”


Most of this work is relatively recent. Society as a whole is hidebound by outdated attitudes and prejudices around domestic abuse, and these are only now being dissipated. They extend to the judiciary—a matter currently under consideration by the Court of Appeal in a case that started last week—and these questions came under close consideration by the Ministry of Justice in its paper last June Assessing Risk of Harm to Children and Parents in Private Law Children Cases. The Bill represents a major step along that journey. I urge the Government to accept all these amendments to bring a sharp focus on what are undoubtedly complex and difficult inter-relationships, but ones which lie at the heart of tackling domestic abuse.

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

My Lords, I am glad to have put my name to these amendments and I thank the noble Baroness, Lady Finlay, for outlining the complex and troubling relationship between alcohol and domestic abuse. I also fully endorse my noble friend Lord Brooke’s wise remarks. He has been a tireless campaigner on this for more than 20 years in your Lordships’ House. I am sure that he, like the noble Lord, Lord Marks, is looking for a strong response from the Government, as I am.

The deep cuts made to addiction services since 2013-14 mean that the estimated 8.4 million high-risk drinkers and the hundreds of additional people with an opiate addiction needing help could miss out on life-saving treatment. No wonder the Royal College of Psychiatrists is calling for the Government to reverse the cuts and enable local authorities to invest £374 million into adult services so that they can cope with the increased need for treatment.

Professor Julia Sinclair, chair of the Addictions Faculty of the Royal College of Psychiatrists, has pointed to Covid-19 showing

“just how stretched, under-resourced and ill-equipped addiction services are to treat the growing numbers of vulnerable people living with this complex illness.”

There are only five NHS in-patient units in the country and no resource anywhere in her region to admit people who are alcohol dependent with coexisting mental illness.

Professor Sir Ian Gilmore, chair of the Alcohol Health Alliance UK, has warned of the hidden alcohol harm crisis in this country. Before the pandemic, only one in five harmful and dependent drinkers got the help they needed; that proportion will now be significantly lower.

Before we even consider the link between alcohol and domestic abuse, we see that the services to help people suffering from substance and alcohol abuse have been severely limited and stretched. The noble Lord, Lord Marks, gave very graphic details indeed of a direct link between domestic abuse and substance abuse. As the noble Baroness, Lady Finlay, said, survivors of domestic abuse can use alcohol or drugs themselves. Research has shown that women who have experienced extensive physical and sexual violence are more likely to use alcohol or drugs harmfully, compared to women who have not experienced extensive abuse.

Despite the close relationship between domestic abuse and substance use, very few survivors access specialist support. This is due, in part, to the lack of services that respond to the multiple needs of people experiencing both domestic abuse and substance use. Research has shown that the lack of integrated or co-ordinated services can see survivors prioritising one need over another—in other words, domestic abuse or substance abuse. Yet even accessing either one service can prove very difficult. People can find themselves turned away from refuges when accessing domestic abuse support due to their substance use. Research in London found that only about a quarter of the refuges reviewed always or often accept women who use alcohol or other drugs.

Likewise, survivors can struggle to find alcohol treatment services that meet their needs and adequately consider their trauma. Women who have experience of violent male partners may be reluctant to engage in mixed-gender services, but women-only provision for substance users is available in fewer than half of local authorities in England and Wales.

It is of course important and welcome that the Bill puts an obligation on local authorities to provide support to victims of domestic abuse. For the reasons that I and other noble Lords have just outlined, it is vital that this support includes substance use, addictions and mental health support where necessary. I too hope the Government will be able to come back with a strong response.