Domestic Abuse Bill

Alex Davies-Jones Excerpts

Consideration of Lords amendments
Thursday 15th April 2021 Commons Chamber

[Alex Davies-Jones (Pontypridd) (Lab)]

I echo colleagues’ comments and put on the record that my thoughts are with the royal family and the friends and family of Dame Cheryl Gillan at this difficult time.

It is crystal clear that the Bill on the whole is extremely welcome. The strength of feeling across the country is that it has genuine potential to transform lives. It was a privilege to sit on the Bill Committee last year and I am proud of just how far the Bill in its current form has come.

As the chair of the all-party parliamentary group on perpetrators of domestic abuse, I welcome with open arms the Government’s recent short-term investments in perpetrator work. What remains crucial, however, is for the Government to publish a comprehensive perpetrator strategy that addresses all the gaps identified in the debate in the other place. That strategy must be driven by the data.

At the moment, with current practices, we have no real idea about the true extent of the number of women losing their lives at the hands of a known perpetrator. Lords amendment 42 is utterly crucial if we are to get a real assessment of the extent of the issue. By forcing the Government to provide a comprehensive perpetrator strategy for domestic abusers and stalkers within one year of the Domestic Abuse Bill being passed, we will be able to improve the identification, assessment and management of perpetrators to ensure a more co-ordinated approach to data collection across England and Wales.

That is critical to tackling domestic abuse in all its forms. Without an accurate picture, it is undeniable that cases will continue to fall through the net. It is utterly shameful that we live in a country where one woman is killed by a partner, ex-partner or family member every three days. Many of these perpetrators of violence have a history of abuse.

A multi-agency approach to managing risk is central to our ability to getting to grips with this crisis. As my right hon. Friend the Member for Normanton, Pontefract and Castleford (Yvette Cooper) said, only a few weeks ago, peers in the other place overwhelmingly voted for the plan to add convicted serial domestic abusers and stalkers to a high-risk offenders register. There is an obvious need and a desire for police forces and specialist agencies to have the tools to allow them to have a cohesive approach to preventing perpetrators from offending again, but also to protect victims going forward. Lords amendment 42, passed in the Lords, has the incredible potential to do just that, yet today Ministers are calling on MPs to vote to drop those plans.

Sadly, we all know the horrendous stories, we have all seen the headlines and we all know those women. The hard truth is that simply too often women are losing their lives at the hands of a perpetrator who has a history of abusive behaviour. That is an utterly shameful reality. I find it incomprehensible that the Government are failing to support action against serial abusers, who often pose the most serious risk of violence to women and girls.

There is no proper system for identifying these perpetrators, no system to monitor them and no system to centralise vital data that can assist in managing the risks and odds of abuse occurring when making initial risk assessments. I struggle to see how that can still be the case when we have known for years just how deeply rooted violence against women and girls and domestic abuse are in this country.

I pay tribute to campaigners such as Laura Richards, a former violent crime analyst for the Met police and the founder of the Paladin National Stalking Advocacy Service. She has been fighting for legislation covering monitoring arrangements for serial and high-harm domestic abuse and stalking perpetrators for years, and this is our chance to make that happen.

Domestic abuse is not inevitable, it is not something new and it is possible to prevent. Lords amendment 42 is a vital step forward, yet I find myself today facing a Government who just do not seem to get it. The Minister made some interesting remarks on the amendment in her opening contribution. She mentioned that the Government have concerns about the complexities of adding to the existing multi-agency public protection arrangements, but surely she must recognise that, if the Government’s hesitancy is about logistical challenges, as opposed to statutory frameworks, that opens some important questions about the Government’s ability to apply seriously the intricacies of the Bill in practice.

I am grateful for the honest assessment in recognising that there is more that the Home Office can do to improve arrangements, but I urge MPs to vote to keep Lords amendment 42 in the Bill and not to agree with the Government motion to reject the amendment.

Police, Crime, Sentencing and Courts Bill

Alex Davies-Jones Excerpts

2nd reading & 2nd reading - Day 1
Monday 15th March 2021 Commons Chamber

[Alex Davies-Jones (Pontypridd) (Lab)]

The last few weeks have been incredibly difficult for women across the country. Sarah Everard’s death is utterly tragic. My thoughts are with her family and friends, as well as with all those who have lost a loved one to male violence.

It is clear to me that Saturday evening in Clapham was supposed to be a peaceful vigil, not a protest. I have spent the last few weeks speaking to women overwhelmed by their feelings of grief and anger. I have spoken to those who feel a little less safe on our streets, those who worry about the world in which their daughters will grow up, and those for whom recent events have brought back their own experiences of trauma, harassment and violence. Campaigns such as the #MeToo movement have ensured that conversations on abuse and violence are finally reaching the mainstream discourse, yet women are not under any illusions. We have spoken out against male violence in all its forms for decades, and I am frustrated and appalled that only now are we being listened to. What is in the Bill for us? How does it protect us? How does it address the scandalous prosecution rates for rape and sexual assault? How does it make women safer on the streets? The simple answer is: it does nothing. Increasing sentences for serious crimes is important, but there is little point if criminals never get to court to be sentenced, as is the case in 99% of rapes. Instead of prioritising victims, the Bill curbs our rights. It makes it harder for us to protest when the Government get things wrong and put the protection of statues above the protection of women.

While I welcome the measures in clause 45 that will extend the existing positions of trust offences, some alarming gaps remain. I am hugely concerned that those provisions will not be applicable in all the circumstances in which they have the power to make a difference. As co-chair of the all-party parliamentary group on wrestling, I am hugely disturbed that the provisions set out in clause 45 will not protect those in the wrestling industry. Colleagues may not be aware that wrestling was devastated by the #SpeakingOut movement, which documented horrific tales throughout the industry, including threats of rape and sexual abuse. Some of the victims facing abhorrent abuse have been children as young as 13.

I am sure that the Minister agrees that we do not want perpetrators of sexual offences to fall through a loophole in this legislation, yet because professional wrestling is not classed as a sport and as such does not have a governing body, it is at risk of doing just that. I urge the Minister to commit to meeting me and my colleagues in the APPG on wrestling to talk about the potential avenues to include appropriate protections for young wrestlers in this Bill.

Actions speak louder than words. To quote a heroine of mine, Justice Ruth Bader Ginsburg, on what would have been her 88th birthday:

“Real change, enduring change, happens one step at a time.”

The Government need to recognise that we need to take that step, and that we are at a crossroads with a real opportunity to change the lived reality for women and girls in this country. I plead with the Minister to work with the Labour party to ensure that women and girls are safer on our streets and in their homes, to work with us to ensure that the right to protest is not reduced and that voices across the country are not silenced—to work with us to finally do the right thing.

Domestic Abuse and Hidden Harms during Lockdown

Alex Davies-Jones Excerpts

Thursday 14th January 2021 Commons Chamber

[Victoria Atkins]

Yes. I am very grateful to my right hon. Friend for all the work he does on the Education Committee to scrutinise our work. We are all concerned about the welfare of the most vulnerable children. That is why, for example, in the first lockdown we enabled vulnerable children to still attend school, sending out the message to parents, carers and children and young people themselves that if they need that extra bit of help and support, schools are open to give them access to that. That continues under today’s restrictions, because schools are open to vulnerable children.

In terms of the work that we are doing over and above keeping schools open, I have already referred to the vital work that social workers are conducting and our efforts to increase the number of social workers available to help with that work. Some of our children’s charities have also been fantastic. I have seen for myself the work that Barnardo’s and the Children’s Society are doing to help children, particularly those who are potentially being ensnared by county lines gangs. This comes back to how we can reach these poor, poor children before those gangs really get their fists on them. It is about a combination of education at school, education and support for families—because mums, dads and carers can be very worried about their child—and ensuring that we have robust law enforcement measures in place against those gangs. One thing the police were able to do during the last national lockdown—the first one—was concentrate on targeting drug gangs. We are seeing some of the results of that work, alongside the safeguarding and early intervention work we are doing.

[Alex Davies-Jones (Pontypridd) (Lab) [V]]

I thank the Minister for her update and fully welcome the new Ask for ANI scheme. Residents in Pontypridd who have experienced domestic abuse will appreciate the issue being raised here today. As my hon. Friend the Member for Rochdale (Tony Lloyd) has said, tackling the root cause of domestic abuse requires a long-term strategy focused on interventions targeted towards the perpetrators. Will the Minister therefore confirm exactly what support the Home Office is providing and what conversations it is having with organisations working in this area?

[Victoria Atkins]

I am so pleased the hon. Lady raised the point about a strategy. She will know, I hope, that alongside our work on the Domestic Abuse Bill—she served on the Bill Committee—which is currently in the House of Lords, we are planning for a stand-alone, specific national strategy on domestic abuse. I very much expect there to be measures in relation to perpetrators within that, because although we of course want to support victims, it is vital that we tackle the cycle of abuse as well. That strategy, combined with our investment of £7.1 million in perpetrator programmes, will, I hope, revolutionise our approach in this important regard of tackling domestic abuse.

Oral Answers to Questions

Alex Davies-Jones Excerpts

Monday 14th December 2020 Commons Chamber

[Priti Patel]

My hon. Friend is absolutely right to point to and highlight the devastating impact of drugs such as Monkey Dust. I have visited his constituents in the past and we discussed these issues. The Government absolutely recognise the corrosive harm that these drugs do. Of course, there are penalties for supplying these drugs—penalties of up to 14 years in prison and unlimited fines. At this moment, we are keeping drug classification under review, and of course we do that taking into account all the harms and the impact of these drugs on individuals and our communities.

[Alex Davies-Jones (Pontypridd) (Lab)]

I welcome the Government’s recent funding commitment to extend the work across England and Wales to manage and change the behaviour of abusive perpetrators, yet I note with concern that these funds have to be spent by March 2021. This clearly does not leave much time to introduce the vital measures that are desperately needed to end domestic abuse. As the Minister has herself said today, it is vital that we reach perpetrators before they have a chance to abuse again, so what plans do the Government have to keep holding perpetrators’ feet to the fire with projects for the long term?

[The Parliamentary Under-Secretary of State for the Home Department (Victoria Atkins)]

I am grateful to the hon. Lady for highlighting that investment. She makes a point about the timeframe in which the money was granted by the Treasury, but this is a programme of work that we are taking forward throughout the next few years. She will understand that there are spending review allocation decisions to be made at the moment, but we are clear that we want to continue tackling this abusive behaviour.

Birmingham Attacks and Extinction Rebellion Protests

Alex Davies-Jones Excerpts

Monday 7th September 2020 Commons Chamber

[Kit Malthouse]

I am more than happy to meet my hon. Friend to talk about the issues in his constituency. He is quite right, as I said earlier, that there is nothing inevitable about crime. If we accept an inevitability, we are basically abrogating our duty towards our fellow citizens to stretch every sinew in keeping them safe, and that is exactly what this Government will do.

[Alex Davies-Jones (Pontypridd) (Lab)]

First, can I also echo the sentiments across the House in bringing my condolences to the families of all those affected by the horrific attacks in the past few days? I sincerely hope that the Minister and the Secretary of State will use this opportunity to reflect on the impact of a decade of Tory cuts to our police services across the UK. It is undeniable that forces across the country are already under extra pressure because of coronavirus. Can the Minister therefore please confirm today exactly what steps the Home Office is taking to prevent further tragedies taking place and unnecessary deaths from occurring on our streets?

[Kit Malthouse]

It will not surprise the hon. Lady to know that the Prime Minister, a former Mayor of London, and I, as his former deputy Mayor for policing and crime, take the issue of violent crime extremely seriously. That is why he set up the criminal justice taskforce, why he personally is leading the fight against crime in this country and why we have seen enormous changes in the crime landscape, not least the recruitment of 20,000 extra police officers, from which her area, like every area in the country, will benefit. It is worth saying and reiterating, as I said earlier, that the solutions to crime are complex and difficult and will require all of us to work together in that fight, and I hope she will join us in our fight against crime both in her constituency and elsewhere in the country.

Oral Answers to Questions

Alex Davies-Jones Excerpts

Monday 13th July 2020 Commons Chamber

[Priti Patel]

My hon. Friend is absolutely right. We must end the dither and delay, as he outlined, and I commend him for championing CCTV to make sure that the local council steps up and does the right thing. I will give him every backing that he needs.

[Alex Davies-Jones (Pontypridd) (Lab)]

It is clear that child victims of domestic abuse who do not enter a refuge often require extra support, which is regularly being overlooked. Will the Home Secretary confirm what specific resources are available to those children to ensure that their needs are met?

[Priti Patel]

If the hon. Lady has specifics that she would like to raise with me, I can come back to her on the details for children. We passed the Domestic Abuse Bill last week in this House and we have been very clear about the protections around children—that is absolutely right. There are many other measures that we have in place, and I would be very happy to write to her about that.

Domestic Abuse Bill

Alex Davies-Jones Excerpts

Report stage & 3rd reading & Report stage: House of Commons
Monday 6th July 2020 Commons Chamber

[Anthony Mangnall (Totnes) (Con)]

It is a privilege to speak in the debate and hear the recounted stories that so many hon. Members have brought to the House. Domestic abuse is a horrific experience; I have spoken to many of my constituents who have suffered it. However, this is a landmark Bill, and we should all be rightly proud of what is going on this afternoon.

I was sorry not to be able to contribute on Second Reading. However, I listened carefully to hon. Members from across the House, whose contributions were heartfelt and have added great weight to the Bill. I congratulate my hon. Friends the Members for Newbury (Laura Farris) and for Wyre Forest (Mark Garnier) and the Mother of the House, the right hon. and learned Member for Camberwell and Peckham (Ms Harman), on their extraordinary work in ending the perverse and unjust rough sex defence. The addition of their amendment will ensure that perpetrators can no longer escape justice from the most heinous and horrific crimes.

My reason for speaking in the debate is twofold. I do so first as chair of the all-party parliamentary group on preventing sexual violence in conflict and, secondly, because a new domestic abuse prevention group has been set up in my Totnes constituency called SASHA—support, advice, safety, help and aid. I hope my work on the former and support for the latter will be of use in tackling this issue and helping all those who, too often, suffer in silence. Much of the work that I and others have done on preventing sexual violence is based on tackling the culture of impunity, ensuring that justice is delivered, and supporting and providing the assistance that so many need. The same can be said of this Bill, which I hope will deliver for people across the country and serve as an inspiration to people around the world, with other countries following suit. I suggest we should be very proud of that.

At the start of the debate, I listened to my right hon. Friend the Member for Maidenhead (Mrs May) and the right hon. Member for Normanton, Pontefract and Castleford (Yvette Cooper), who spoke passionately about advertising and ensuring that people are aware of the contents of the Bill. That cannot be expressed enough. People must understand what the clauses do and how there will no longer be the injustice of people getting away with a flimsy defence. The Bill will end the reality of people thinking that domestic abuse is just something that occurs and that it is of a time. We can do better than that.

Covid-19 has highlighted the prevalence of domestic abuse both at home and abroad. The sad fact is that crises and conflicts only see gender-based violence increase, regardless of where someone is or where they live. The facts speak for themselves. As other hon. Members have said, 26 women and girls have been killed since the lockdown began in March. That is a tragedy in itself. The lockdown has forced people from their schools, their places of work and their social areas—essentially their refuges and places of safety—and pushed them back into the arms of abusers, behind locked doors from which they cannot call out, cry out or ask for help. Again, that is something that the Bill will deal with in its entirety. However, for every crime, how many will not be reported? For every bruise, every broken bone and every rape, how many people will not be able to come forward? That is of serious concern. We must continue to work that.

The Bill, as I said, is a landmark piece of legislation. It does all the things in the right area. However, it is also important to note that it is the first step of many that I hope this Government and future Governments will take to ensure that we can always seek justice for those who need it. Only when victims have places of safety and perpetrators feel the full force of the law will we be able to believe that progress is being made. I see that my time is already running out, so I will just make the point that the creation of a commissioner, the new civil domestic and protection notice, and the international jurisdiction are all incredibly useful.

[Alex Davies-Jones (Pontypridd) (Lab)]

Diolch, Madam Deputy Speaker. It is an honour to follow the hon. Member for Totnes (Anthony Mangnall), who spoke so passionately. I echo and support his calls.

It is an honour to speak on the Bill, which I know has the potential to change the lives of so many domestic abuse victims across the UK. Colleagues may be aware that I sat on the Bill Committee. We heard compelling evidence from a wide range of charities and campaign groups, including Women’s Aid, Welsh Women’s Aid and the Latin American Women’s Rights Service. I pay tribute to them for the fantastic work they do every day, although it is of course frustrating that their services are required and relied upon by so many victims in the first place.

I also pay tribute to my fantastic colleague, my hon. Friend the Member for Canterbury (Rosie Duffield). I know that her bravery in speaking up about her personal experiences has formed the inspiration for many of our speeches today. I thank her and admire her for her courage. I hope that by speaking up I can do my bit to ensure that the experiences of domestic abuse victims remain at the forefront.

It is clear that coronavirus has confirmed and exposed what I already knew to be true, based on experiences with domestic abuse victims in my own constituency: there is simply not enough protection and support for domestic abuse victims. Since December, my team and I have dealt with more cases of domestic abuse than I ever imagined possible. It feels as though domestic abuse is seen by many people as a hidden offence, something that happens in the newspapers, behind closed doors or somewhere else, but not to people on our doorsteps. The harsh reality is that domestic abuse is a very present threat to so many individuals in so many households. It is happening right now, right this minute.

Ultimately, 10 years of Tory austerity has impacted the ability of local authorities to fund the specialist services that support survivors of domestic abuse. I welcome the Bill, but it must go further to provide equal protection for all victims of domestic abuse: men, women and children. A one-size-fits-all approach to tackling domestic abuse will prolong the suffering of victims, so it is vital that we use this opportunity to ensure that the Bill commits to a co-ordinated cross-Government response to domestic abuse. The Bill must deliver the changes that survivors urgently need in all areas of their lives, from housing to healthcare, from immigration access to justice and to welfare reform.

The changes simply must apply to migrant women, who we know face a unique set of acute barriers when seeking support, coupled with the Home Office hostile environment. Migrant women face the unique threat of having their immigration status used as a form of coercive control, which may prevent them from seeking support. I find it hugely concerning that more than half the police forces in England and Wales confirmed, in response to freedom of information requests, that they share victims’ details with the Home Office for immigration control purposes. Surely, it is our duty to protect victims. They should be prioritised ahead of and above immigration action.

I would also like to take this opportunity to pay tribute to the fantastic work of Laura Richards and others for all their hard work in relation to new clause 33. Colleagues may be aware that domestic abuse currently costs society at least £66 billion a year, yet that estimate does not include stalking or the psychological impact of stalking. Therefore, the cost is likely to be much, much higher. It is clear that we could save the lives of many, if only the violent histories of domestic abuse perpetrators were actively joined-up. It is vital that our police, prison and probation services are able to identify, assess and manage serial and serious domestic violence perpetrators and stalkers ahead of them committing an offence. The Bill presents a real opportunity to better protect victims, intervene and prevent further abuse, but it does fall short of committing to a multi-agency problem-solving approach by statutory agencies.

To conclude, public protection must be at the forefront. Our current incident-led approach to patterned offences such as domestic abuse and stalking is costly with people’s lives, especially for victims.

[Sara Britcliffe (Hyndburn) (Con)]

After giving my maiden speech on the Second Reading of this landmark Bill, I would like to acknowledge the cross-party work since then in Committee that will rightly protect so many. I recognise the courage it will have taken for Members across this House to speak of their own experiences and for every victim who has come forward, including my constituents. They have shaped the Bill.

Domestic Abuse Bill (Tenth sitting)

Alex Davies-Jones Excerpts

Committee stage & Committee Debate: 10th sitting: House of Commons
Tuesday 16th June 2020 Public Bill Committees

[Liz Saville Roberts]

The new clause calls for the creation of a domestic abuse register to ensure that greater and more consistent protection is provided for potential victims of domestic abuse from individuals who have a track record of abusive behaviour in relationships and whose potential for repeat violent actions warrants the threat of intervention.

A domestic abuse register would provide the vehicle for a shift in focus away from reacting to domestic abuse towards a more preventive approach. We know that repeat offending by perpetrators with violent and controlling histories of abuse is common. A 2016 report published by a Cardiff University professor of criminology states:

“Research demonstrates that the majority of male domestic abuse perpetrators are repeat offenders, with English research producing a figure of 83% within a six-year period.”

Data provided by the Metropolitan police to the London Assembly for its domestic abuse report showed that in the year up to September 2019, there were over 13,600 repeat victims of domestic abuse, and 21% of cases discussed at multi-agency risk assessment conferences in London in 2018 were repeat cases. This sobering fact warrants being addressed clearly in the Bill.

The domestic violence disclosure scheme, or Clare’s law, mentioned in a previous sitting, has been in place since March 2014. It is named after Clare Wood, who was murdered by her ex-boyfriend 11 years ago. It enables preventive action to be taken to protect potential victims of domestic abuse, but its use has been widely questioned by many domestic abuse charities such as Refuge. There are two elements to Clare’s law: the right to ask, which allows individuals or their families to seek further information about a partner’s past; and the right to know, in which the police offer to make a disclosure to an individual who they believe might be at risk through their relationship.

The Government’s 2019 review of the domestic violence disclosure scheme showed that only 55% of 7,252 right-to-know applications, and 40% of 6,196 right-to-ask applications, resulted in disclosures. Those are low percentages, and they give rise to the question: why are so many victims unwilling or unable to engage with the police? The same report revealed that seven out of 43 police forces made no right-to-ask applications in that year. That is problematic. Many abusers evade justice because the onus is on the individual to be suspicious about their new partner’s history. There is an implicit risk that if an individual is told that their partner has no record of domestic abuse, they might be reassured about trusting their partner, but it might be that their crimes were simply not recorded—in other words, that nothing was disclosed on asking.

Individuals with a history of coercive and abusive behaviour towards partners will seek out partners with whom they can repeat such behaviour. To speak plainly, it is predictable that their new partners will often not be people who will consider Clare’s law relevant to their immediate situation. Earlier, we referred to the fact that in a new relationship, people will not be receptive to asking whether their partner will do them harm, or to their mother asking that question of the police. They may very well not be receptive to the police knocking on their door to tell them this information. Although evidently Clare’s law is excellent in and of itself, it warrants our questioning its effectiveness. I am very interested in hearing what the Minister has to say about new clause 12, and about how they are considering how Clare’s law will work in future.

I hope all of us would endeavour to promote shifting the onus away from the victim to the perpetrator. That is precisely why a domestic abuse register is needed. New clause 12 demands that domestic abusers sign a register. This would ensure the wellbeing of victims, and place the responsibility on the offender—as they are on the register, they are of course a proven offender—and on the agencies that are meant to prevent abuse and protect victims from it.

The creation of a domestic abuse register would mean that perpetrators were monitored in the same way as sex offenders, paedophiles and violent offenders, which would allow the police to provide greater protection for victims via a similar process to that used in respect of the violent or sex offender register and the multi-agency public protection arrangements. New clause 49, which I support, proposes monitoring serial domestic abuse and stalking offenders via a register managed by MAPPA. However, importantly, senior police sources who gave evidence to the London Assembly raised concerns about the emphasis that the current register places on sex offenders over violent offenders. Before we shift more on to that mechanism, its effectiveness needs to be reviewed, because we could be looking to use mechanisms that are not proving effective. The point is echoed by the London Assembly, which agrees that a register could vastly improve the way that police officers are able to proactively track and manage the risks presented by the most dangerous perpetrators.

While it is, of course, welcome that the Bill strengthens existing powers with the introduction of domestic abuse protection notices and domestic abuse protection orders, which will give greater protection to victims, the onus remains on the victims, rather than the perpetrator or the authorities. A domestic abuse register would address that. It is not only political institutions, domestic abuse charities and campaigners that are calling for a domestic abuse register, but the very people who are affected by domestic abuse.

In closing, I will give one example. The mother of 17-year-old Jayden Parkinson called for such a register to be kept, in order to track the activities of domestic abuse offenders after her daughter’s former boyfriend, Ben Blakeley, brutally murdered her a day after she told him that she was expecting his first child. It emerged after her death that Blakeley was a serial abuser and had exhibited violent and controlling behaviour towards most of his girlfriends in the past, even pushing one of his former girlfriends down the stairs when she was seven months pregnant.

The case of Jayden Parkinson made it clear that the effective management of domestic abuse calls for a shift to greater proactive risk management. A domestic abuse register would place the onus on the most dangerous domestic abuse offenders to register with the police and to maintain up-to-date details, such as address and relationship status. I know that one of the police’s concerns is capacity—the numbers involved here. Surely, however, with a register and with the facilities enabled by technology, we would be able to reduce much of the pressure on the police in that respect. That would allow police forces to assess the threat posed by offenders in their communities and put in place the required level of proactive policing, or a lower level of monitoring through existing partnership arrangements.

Finally, there is a critical point to make. I referred to the London Assembly and the work being done by the Met, but that has only been done within some of the boroughs covered by the Met. We want a consistency of approach across England, across Wales, and across police forces, and, at the least, I would appreciate a comment from the Minister about a review of how consistency and the shifting of the onus on to the perpetrator and away from the victim can be managed consistently, across all forces and across England and Wales.

[Alex Davies-Jones (Pontypridd) (Lab)]

Diolch, Ms Buck. I will speak to new clause 49, if that is appropriate now, because it is grouped with the amendment.

Domestic abuse and stalking are the only crimes where a serial abuser is not proactively identified and managed. I take this opportunity to pay tribute to the fantastic work of Laura Richards and others, for all their hard work, and their blood, sweat and tears, on new clause 49.

Hollie Gazzard was stalked and murdered by Asher Maslin. He had been involved in 24 previous violent offences: three against Hollie; 12 against an ex-partner; three against his mother; and four against others. Why was Hollie left at risk?

Kerri McAuley was stalked and murdered by Joe Storey. He broke every bone in her face. When she left him, he bombarded her with 177 calls. He had many convictions for abusing many women since the age of 14. Two women had also taken out restraining orders against him. Why were the risks not joined up?

Linzi Ashton was raped, strangled and murdered by Michael Cope. He had strangled two previous partners, but his repeated pattern of abuse towards women was not joined up. Why not?

Justene Reece took her own life. Nicholas Allen coercively controlled Justene and he stalked her relentlessly when she left him. Justene ran out of fight. Allen had been convicted for assault and harassment of other women. However, none of those offences were joined up. He was charged with coercive control, stalking and manslaughter after Justene died. Why?

We are currently in the middle of a global health pandemic, but we are also in the midst of another pandemic: the murder of women. These murders do not happen in a vacuum; these murders do not happen in slow motion. They drip, drip, drip over time on an escalating continuum. Since the lockdown began, 33 women and four children have been brutally murdered.

These offenders are not first-time offenders; no one starts with murder as their index offence. Currently, police rely on victims to report crimes and often it is the victims who are forced to modify and change their behaviour; they flee their homes and they disappear themselves in order to stay safe. This incident-led approach to patterned crimes such as domestic abuse and stalking must be stopped. Women are paying with their lives. It is clear that we need a cultural shift, through law, to ensure that the perpetrator is the focus, and that they must change their behaviour and take responsibility. Serial offenders should be the ones who are tracked, supervised and managed, not the victims.

--- Later in debate ---

I have had some experience of that this week. My sister-in-law came over—to sit in my garden, I hasten to add. She is training to be a social worker and spoke about the different Acts that she was learning about as a frontline social worker because she was going to take her law exam. I told her that I hoped to change some of them by the time she becomes a social worker. If we do not make sure that this Bill accurately reflects the dynamics and nature of domestic abuse, we are missing a huge opportunity to counter some of the damaging practices that are seen among some of those tasked with responding to domestic abuse.

[Alex Davies-Jones]

In our Committee’s evidence session, we heard from Sara Kirkpatrick, the CEO of Welsh Women’s Aid, who said this, and I heartily agree:

“Some really exciting things have come out of the Welsh legislation, particularly the idea of taking that broader lens…of violence against women and girls”––[Official Report, Domestic Abuse Public Bill Committee, 4 June 2020; c. 66, Q158.]

I know that I am harping on about Wales again, and I make no apology for it. We know that domestic abuse impacts everyone—men, women and children—but we also know that it is women and girls who suffer the most frequent and severe abuse. It is important to acknowledge that in order to enable practice and support to be tailored to the specific needs of the person experiencing abuse, as opposed to a one-size-fits-all approach.

The Violence against Women, Domestic Abuse and Sexual Violence (Wales) Act 2015 includes all forms of violence and abuse against women and girls, including domestic abuse, rape and sexual violence, stalking, forced marriage, so-called honour-based violence, female genital mutilation, trafficking and sexual exploitation—including through the sex industry—and sexual harassment in work and public life. None of these forms of abuse are mutually exclusive, and policy and service provision should reflect that.

[Victoria Atkins]

I thank the hon. Member for Birmingham, Yardley for tabling the new clause. I hope that she knows that I always enjoy debating the issue of gender with her, because those debates draw us out of the nitty-gritty of the Bill’s text and make us think about wider and bigger topics. I very much accept that she will get all sorts of abuse tonight on Twitter, but may I gently remind her that Twitter is not the real world? I say that as someone who came off Twitter a few years ago and I have not missed it for a second.

My bigger concern when it comes to raising awareness of domestic abuse relates to a more common misunderstanding. It is not necessarily that women are disproportionately victims and survivors, because from my experience, I think that that is pretty well understood. What worries me is the idea that “She must leave him.” I hope that, through the Bill, and the work that we are all doing, we are beginning to change that conversation, but I absolutely understand why the hon. Lady has raised this issue.

The hon. Member for Pontypridd took the words out of my mouth: anyone can be a victim of domestic abuse, regardless of their age, gender or ethnicity. We have had to reflect that fact in the definition. We have followed the lead of the drafters of the Istanbul convention in adopting that gender-neutral stance. There is no reference to gender in their definition of the act of domestic violence. The explanatory report published alongside the convention expressly states that the definition is gender neutral and encompasses victims and perpetrators of both sexes.

However, we very much want to reflect the fact that the majority of victims are female, which is why we set out in clause 66, following careful consideration by the Joint Committee on the Draft Domestic Abuse Bill, the requirement on the Secretary of State regarding the guidance; the guidance reflects that fact. I appreciate that the definition is incredibly important, but the people commissioning services, training and looking at how their local services are working will be drawn to the guidance, in addition to the Bill, and will want practical help with it. That is how we adopted the definition.

We have made it clear that the definition has two fundamental elements: the first deals with the relationship between the abuser and the abused, and the second deals with what constitutes the categories of abusive behaviour. If the definition is to work for victims and survivors, it must work for all, regardless of gender or other characteristics. Interestingly, we have not been able to identify any other English-language jurisdiction that adopts a gender definition in relation to domestic abuse.

Domestic Abuse Bill (Ninth sitting)

Alex Davies-Jones Excerpts

Committee stage & Committee Debate: 9th sitting: House of Commons
Tuesday 16th June 2020 Public Bill Committees

[Victoria Atkins]

It is a pleasure to serve under your chairmanship, Ms Buck. I am pleased today to be able to bring forward new clause 16, which will amend the Housing Act 1996 to give those who are homeless as a result of being a victim of domestic abuse priority need for accommodation secured by the local authority. The Government believe that it is vital that domestic abuse victims who are homeless or at risk of homelessness are supported to find an accommodation solution that meets their needs and reflects their individual circumstances.

In April 2018 the Homelessness Reduction Act 2017 came into force. That Act, for the first time, puts prevention at the heart of the local authority response to homelessness, irrespective of whether those seeking support are a family or an individual on his or her own, and notwithstanding what has put them at risk. That means that all households that are homeless or at risk of homelessness should be provided with an offer of support from their local authority to find appropriate accommodation.

Since the 2017 Act was implemented, more than 200,000 households have had their homelessness successfully prevented or relieved. However, for those who need more support, it is right that the local authority should have a duty to house them immediately and secure accommodation for them. Under homelessness legislation, a person who is pregnant, has dependent children or is vulnerable as a result of having to leave accommodation because of domestic abuse, already has priority need for accommodation.

However, the Government are now going further. Through new clause 16, the Government will automatically give domestic abuse victims priority need for accommodation. That change will mean that consideration of vulnerability will no longer be required for domestic abuse victims to be entitled to accommodation secured by the local authority. If the authority is already satisfied that an applicant is homeless as a result of being a victim of domestic abuse, that victim and their family should not need to go through an additional layer of scrutiny to identify whether they are entitled to be accommodated by the local authority. The amendments to the Housing Act will help ensure that victims do not remain with their abuser for fear of not having a roof over their head. Alongside the announcement made in the spring Budget to extend exemption from the shared accommodation rate to victims of domestic abuse, that should support victims to move into a place of their own where they can feel safe and secure.

New clause 13, tabled by the hon. Member for Bermondsey and Old Southwark, who is not here today, would have the same effect as the Government’s new clause 16. The one difference is that the hon. Gentleman’s new clause would also extend priority need status to other persons residing in the same household as a victim of domestic abuse. I want to assure the Committee that such provision is not needed. Where an applicant has priority need, the Housing Act already requires local authorities to provide accommodation that is “suitable” for the household. There is therefore no need for each member of the household to have priority need. Amendments 40 to 42 are consequential on new clause 16.

[Alex Davies-Jones (Pontypridd) (Lab)]

Diolch yn fawr, Ms Buck. It is my pleasure to speak to new clause 13, which outlines the need for more stringent housing support for those fleeing domestic abuse in their current households. Colleagues may recall—I certainly will not forget it, and will be dining out on it for a while—that last week the Minister kindly coronated me as the princess of Wales. I was most flattered by the proclamation and make no apologies for speaking up for people across Wales. I plan to use my new-found royal status to ensure that the voices of Welsh victims of domestic abuse are heard and protected in the Bill.

We all know that with great royal power comes great responsibility. I will be using my voice today to focus on themes that are relevant across the board in England. It is clear that domestic abuse has no boundaries; it does not care what nation you are from or what language you speak. It is imperative that we ensure that collaborative working between both nations covered by the Bill can continue if we are to strengthen the spirit of the Union.

I am delighted to speak to new clause 13. I pay tribute to the hard work of my colleague the hon. Member for Bermondsey and Old Southwark for prioritising the housing needs of survivors of domestic abuse. Sadly, he is unable to join us today, and I know that all Committee members wish him well.

The Government’s change of heart following the brilliant campaign by the all-party parliamentary group for ending homelessness is a welcome step, and these changes will undoubtedly save lives. The campaign was supported by MPs across the House, and a number of organisations in the domestic abuse sector were involved. I hope that colleagues will afford me the opportunity to list the organisations that played a vital role and that are standing together against domestic violence: Crisis, Women’s Aid, Refuge, the Domestic Abuse Housing Alliance, St Mungo’s, Surviving Economic Abuse, Shelter, Homeless Link, Depaul, Centrepoint, Hestia, Changing Lives, the Chartered Institute of Housing, The Connection at St Martin-in-the-Fields, and Latin American Women’s Aid.

It is clear that in England there is a gap in the support offered to those fleeing domestic abuse. These are very real people who are making the brave and bold decision to flee from an unsafe household. We must remember that, because it can be easy to lose sight of that as we sit in this place and discuss the technicalities of the Bill. They should be our priority, but the current system is failing them.

Research by the APPG last year showed that nearly 2,000 households fleeing domestic abuse each year in England are not provided with a safe home, because they are not considered to be in priority need for housing. Colleagues may be aware that during the APPG’s inquiry into domestic abuse and homelessness in 2017, there was clear evidence that local authorities in England were consistently failing to provide people fleeing domestic abuse with the help they need.

I was particularly concerned to read about the vulnerability test being used as a gatekeeper tool by local councils across England. I am pleased that we will now be able to reverse that trend and provide those who are fleeing domestic abuse with a real opportunity to rebuild their lives, yet the amendment still does not go far enough. Despite initial informal commitments from the Ministry of Housing, Communities and Local Government to adopt the APPG’s amendment word for word, there are now some key differences in the final amendment, which could undoubtedly lead to some domestic abuse victims in England who require housing support falling through the cracks.

The APPG’s amendment would ensure that anyone in a household who applies for homelessness assistance in England due to domestic abuse would qualify for automatic priority need and have a legal right to a safe, permanent home. It is extremely disappointing that the wording of the Government’s amendment means that survivors would be required to physically make the application for homelessness assistance themselves in order to receive automatic priority need. Both the domestic abuse and homelessness sectors have expressed concern that the Government’s amendment fails to guarantee adequate protection to survivors of domestic abuse.

Colleagues will be aware that a note from the APPG, containing more information, was circulated to Committee members recently. I am aware that the hon. Member for Harrow East (Bob Blackman), in his capacity as co-chair of the APPG, recently wrote to Ministers and received a reply indicating that the Government do not intend to change their position on this. The Government response states:

“Allowing a member of the household to make the application could allow a perpetrator to manipulate the situation and frame themselves as the ‘new partner’, using the victim to obtain accommodation for their own gain and allow the abuse to continue.”

However, the domestic abuse sector does not agree.

The APPG’s amendment makes it clear that priority need status for settled housing can be guaranteed regardless of whether the homelessness application is made directly by someone in the household who is experiencing domestic abuse. In comparison, the Government’s amendment would not allow for other members of the household to make the application. So many examples spring to mind of where domestic abuse victims could slip through the cracks under the terms of the Government’s amendment, such as children who have had to flee an abusive situation with their mother.

Specifically, this is relevant in a context where only the mother has been abused but the children are not able to reside with their mother, perhaps due to parental addiction or the children being adults. Similarly, if a mother and her children were facing abuse by an adult child against one or more siblings who are under 16, but not against the mother, they would not be entitled to seek urgent support. I hope colleagues will forgive my listing the technicalities of those situations, but they are very real and present in all the communities that each of us represents and serves.

Allowing a member of another household to make an application for homelessness assistance on behalf of an individual who is the victim of domestic abuse is a vital safeguarding mechanism for those fleeing abuse. The strength it takes to flee an abusive household is undeniable, but it will not always be safe or suitable for victims of abuse to make an application for assistance in person. In many cases it will be too dangerous for them to leave their home until they know that they have somewhere safe to seek refuge, or there could be logistical issues, such as where a victim is receiving hospital treatment. For other groups of people considered to be in automatic priority need for settled housing in England, it is already the case that someone else in the household is able to make the application—for example, if a woman is pregnant, their partner is able to make an application on their behalf. The same principle must be extended to people who are fleeing domestic abuse.

Having spent some time discussing the provisions needed in England, I will turn my attention back to my home nation of Wales, to highlight the impact that the truly groundbreaking Violence against Women, Domestic Abuse and Sexual Violence (Wales) Act 2015 has had. In Wales, the Labour Government have implemented legislation that puts a duty on the devolved public sector to prevent, protect and support. This has increased understanding and built referral routes to specialist support, allowing local authorities to work alongside and in conjunction with those specialists in order to ensure rapid support for those who need it. After a decade of funding cuts to local authorities across the UK, it is clear that those local authorities are under pressure, particularly when it comes to the housing crisis that we see up and down the country. I urge the Government to reconsider and allow more flexibility for domestic abuse victims who are seeking urgent housing support.

Finally, I hope that colleagues will indulge me as I use some key case studies to highlight the importance of a more accessible system for applying for homelessness assistance. At Women’s Aid, one service user said:

“After a year of fallout, I was still homeless and on my backside—it felt like I was worse off for going through ‘the system’.”

A key worker from Solace Women’s Aid—a fantastic charity based in the constituency of my hon. Friend the Member for Bermondsey and Old Southwark—said:

“A lot of women I work with have a secure tenancy. They really don’t want to leave the secure tenancy. But then often they might not have a lot of choice… some women will prefer to…take massive risks…than leave it.”

One case highlighted by Crisis was that of Danielle, who was made homeless when her relationship ended, after her neighbour called the police following a two-day beating. Despite visible bruising and a letter from her partner admitting the abuse, she was told by the council that she needed to provide further evidence of her vulnerability, and that she was not a priority. So she ended up homeless and sofa-surfing for more than two years.

An anonymous survivor said that he had escaped a three-year abusive relationship where, on occasion, his partner had locked him in a room for five days and beaten him so severely that he was confined to a wheelchair. When he approached the council, he was refused help with finding a safe home, which left him with no option but to sofa-surf for several months. Eventually, a charity that supports victims of domestic abuse helped him to deal with the council, and he is now socially housed.

It is clear from those testimonies that we have an opportunity to change the course of people’s lives and affect their ability to regain their independence following a period of domestic abuse. It is not unreasonable to allow for a more flexible system to ensure that victims can get access to the housing support they need. That additional power would improve people’s ability to flee, and could be hugely powerful as a lifeline for those in need. The new clause is well written, with substantive detail. I ask that the people I have talked about be made a priority.

[Victoria Atkins]

I thank the hon. Lady for her comments. In the spirit of the Bill, and of the Committee, let us welcome the fact that we are making changes in the area in question. It is fantastic that new clause 16 has been tabled.

There is a sliver of disagreement between the Government and the hon. Members for Pontypridd and for Bermondsey and Old Southwark, on the role of other people in the household. We have heard a great deal—just in the Committee Room, let alone in our experiences outside it—of the manipulative nature of some perpetrators and their ability to seize an opportunity against their victim, use it for their own ends and do incredible damage to the victim. Also, the children are often victims. Victims of domestic abuse may be vulnerable and at risk of such manipulation—of being controlled by the perpetrator, whether that is a partner in an intimate relationship, as described in clauses 1 and 2, or indeed a family member. It was against that backdrop that we drafted the clauses.

Our primary concern, on the sliver of disagreement between us, is that an abusive partner could apply for new housing under the approach suggested by the hon. Lady, to the detriment of the victim and the gain and advantage of the perpetrator. Clearly no one wants that.

I take the point about the need to ensure that the system is sensitive to the needs of victims. Indeed, I am pleased that my hon. Friend the Member for Harrow East, who has led the campaign with the hon. Member for Bermondsey and Old Southwark, wrote to my hon. Friend the Under-Secretary of State for Housing, Communities and Local Government, the Member for Thornbury and Yate (Luke Hall), who responded on 10 June. In the course of the correspondence and conversations, the hon. Lady’s concerns were clearly canvassed as well. My hon. Friend the Under-Secretary told my hon. Friend the Member for Harrow East that there is already the flexibility in the system to take care of cases where someone has difficulty making their own application, whether that is because they are in a hospital bed or because they are in a refuge that they cannot leave.

The homelessness code of guidance covers such circumstances. Paragraphs 11.13 to 11.16 make it clear that where a face-to-face appointment does not meet the applicant’s needs, assessments can be completed on the telephone or internet, or with the assistance of a partner agency. As for the case studies that the hon. Lady raised, I very much hope that, under new clause 16, Women’s Aid and the other fantastic organisations that we all support would be able to help the victims who could not make applications face to face because of their circumstances.

The hon. Lady raised the issue of secure tenancies. Again, that is addressed in the Bill, in clause 65. Our slight disagreement, as I have said, is on the point about a perpetrator’s ability to manipulate.

We want victims to have full control and ownership of their homelessness application and the accommodation offer from the local authority. That is what new clause 16 manages to achieve.

--- Later in debate ---

[Peter Kyle]

I rise to say a few words about new clause 14. It seeks to grant anonymity in the press to survivors of domestic abuse, should they request it. In recent days, the front page of one of our national newspapers covered an instance of domestic abuse in really quite grim terms. It failed to point out the consequences of it, and did not report any remorse whatsoever. That kind of most insensitive reporting still makes its way on to the front page of papers.

We know the counter-case, too. In the wake of the Leveson inquiry, we know that these issues are sensitive. We must be fully aware of the need for the press to do their job in as unencumbered a way as possible. The Independent Press Standards Organisation, the largest independent regulator of the newspaper and magazine industry in the UK, has no guidance whatever for journalists on how to report domestic abuse cases. There is only a short blog, which suggests that journalists heed to how domestic abuse charities would like cases reported locally. The industry has acknowledged the issues relating to the reporting of domestic abuse, but no action whatever has been taken.

It is clear that the Government and Parliament need to speak, and we need to guide the industry through legislation. The issue has become so pronounced because stories are published in which victims and survivors of domestic abuse are named, as well as family members and children. When these stories make their way on to websites, which is where the majority of people read news these days, victims have no anonymity. Underneath the story, there is a plethora of people discussing and naming people, saying, “I heard this”, or “I heard that she was that”; the irony is that they are all anonymous. They are benefiting from an anonymity that the victims do not have. These issues are cast in a new light in the modern era, whereas regulations are distinctly old-fashioned.

Journalists are struggling on how to deal with the issue. I recognise that, and have spoken to many of them. It is not wholly the responsibility of the press, because when it comes to other crimes and their survivors, it is set out in law how journalists are to respond. The keystone piece of legislation providing anonymity is the Sexual Offences (Amendment) Act 1992, which gives survivors of sexual assault the right to press anonymity, and lays out the circumstances in which that right can be waived.

The Government have already shown support for the spirit of the new clause in legislation for survivors of other crimes such as the Serious Crimes Act 2015, which grants anonymity to and protection for alleged victims of female genital mutilation. In section 2 of the Modern Slavery Act 2015, victims of any human trafficking offence are granted anonymity. The Government are willing to grant anonymity to certain types of people, and it is striking that a person has the right to anonymity if they are the victim of sexual violence, but not if that sexual violence occurs within a relationship and in a home. These proceedings cast that anonymity in a new light. The new clause would provide similar restrictions on how the press could report on survivors of domestic abuse, so that it would not be left to individual publications to make that decision. In today’s hyper-competitive media world, where there are shrinking readerships and a move to online news, the issue is more important than ever.

The domestic abuse charity RISE in my constituency has been vocal about the need for this change. It reports that if the survivors they care for are named in the press, they are less likely to report domestic abuse in the first place. One service user provided testimony about the impact on their life of being named in the press:

“My daughter had to be informed by the school after the article named me as all the parents at school were aware, as well as the children because it was all over social media. It made me feel that I was still being controlled, I felt vulnerable and exposed. I feel so much hurt for my little girl, she didn’t need to know, the impact on her is huge, she is hypervigilant and gets very scared on the bus if someone is on their phone as she believes they are filming her. I never want another child to go through what my child went through.”

Another said:

“None of my family knew, neither did my employer. I felt a lot of shame and then seeing my name in the article and the awful comments made below the article were dreadful, there was racial abuse online. I felt sad, ashamed, embarrassed and violated. Something that took a lot of courage for me to report and everyone got to know about it. Even now I find myself googling my name for fear of it popping up again. There is an added layer of shame when I already had enough to process with regard to being abused.”

The Government have shown, through the development and scrutiny of the Bill, that they want it to stand the test of time. I believe that, as we move forward, the press becomes more competitive; there are more online opportunities to name and discuss people, and to tread over the line—particularly when someone in the public eye is subject to domestic abuse and the opportunity for media to make money from using that name becomes overwhelming. Some journalists might feel some shame about it, but for some it might be a choice between making money or income, and protecting a victim. I do not think that individual journalists should be put in that position.

We have an opportunity now to equalise the law and extend the protection of the anonymity given in cases of violent sexual crimes that occur outside the home, so that it is also given when crimes occur inside the home.

[Alex Davies-Jones]

Diolch, Ms Buck. I will be brief. I do not want to repeat the powerful words of my hon. Friend the Member for Birmingham, Yardley, but it is important to make the point that previous sexual behaviour is not, and should never be, taken as evidence of consent to a particular encounter. Neither should experience of or interest in any particular act be used to suggest that it is possible for someone to consent to their own murder, as has been the case in the past.

My hon. Friend the Member for Hove said that the media are complicit in sexualising and sensationalising horrific acts of violence and causing huge further trauma to the families of victims. Those victims—mainly women—and their families need anonymity.

A BBC study in 2019 found that more than a third of UK women under the age of 40 had experienced unwanted slapping, choking or gagging during consensual sex. Of the women who experienced those acts, 20% said they had been left upset or frightened. It is vital that women’s voices should no longer be silenced.

[The Parliamentary Under-Secretary of State for Justice (Alex Chalk)]

It is once again a pleasure to serve under your chairmanship, Ms Buck. I thank colleagues for those helpful and powerful contributions. I want to begin my remarks by echoing a point that was made: we should not be shy in this place about making observations that are sometimes uncomfortable.

It seems to me a fact that there is a worrying and increasing normalisation of acts that are not just degrading but dangerous. Because we live in a liberal, open, tolerant society we of course do not want to step into the bedroom. We do not want to intrude into people’s private affairs, but when what they do leads to someone’s death we should not have any compunction about taking the steps necessary, first to ensure that people are safe, secondly to ensure that justice is done, and thirdly to send a message: if someone wants to behave in that way, when the consequences come to pass, on their head be it.

I am grateful to the Opposition Front-Bench spokespersons for making the case for the new clauses. Before addressing those in detail, I pay tribute, as others have, to my hon. Friend the Member for Wyre Forest, who is the constituency MP of Natalie Connolly and her family, and to the right hon. and learned Member for Camberwell and Peckham. They have run a formidable campaign and have engaged closely and constructively with the Government. I pay tribute to them for that.

Domestic Abuse Bill (Seventh sitting)

Alex Davies-Jones Excerpts

Committee stage & Committee Debate: 7th sitting: House of Commons
Thursday 11th June 2020 Public Bill Committees

[Alex Davies-Jones (Pontypridd) (Lab)]

When the Minister talks about a national steering body, could she clarify whether she means England and Wales, or England only?

[Victoria Atkins]

Of course, it will respect the devolution arrangement. I like the phrase “jagged edge”; it describes it well. The group will work within the devolution arrangement. As has been the case throughout the Bill’s passage, we are happy to compare and work with our Welsh partners to ensure a consistent approach and to ensure that there is learning, and so on. We have taken an open approach throughout the Bill.

The group will review the operation of local needs assessments and the provision of domestic abuse support in safe accommodation across the country, specifically considering specialist provision for those who share relevant protected characteristics and services that serve a national rather than a local need. That will allow best practice to be shared and will highlight areas that may need further support to provide the consistent coverage expected by victims and the Government.

Clause 56 deals with guidance in addition to local partnership boards and the annual reports. The Secretary of State will also issue guidance to local authorities in England on exercising their functions in part 4. The clause places a duty on the Secretary of State to consult with the domestic abuse commissioner, local authorities and other persons considered appropriate by the Secretary of State. Subsection (2) requires local authorities to have regard to the guidance when exercising a function to which it relates. We are pleased to say that the guidance —which has been welcomed by local authorities—is to help them to deliver these vital services at local level. It will clearly outline the Government’s expectations for local authorities in delivering this duty.

We recognise that there is a balance between giving local authorities the flexibility to meet particular local needs and the requirement for a consistent approach to the provision of support within safe accommodation across the country. The guidance will help to provide a standardised approach to enable that to happen. We will make it clear in the guidance how that duty interacts with other duties and requirements on local authorities, such as those relating to homelessness.

I hope that colleagues with particular expertise will understand that the guidance will, I suspect, be quite a weighty document in its own right. It will sit alongside the statutory guidance that we have talked about for the Bill as a whole, precisely because we want it to be a working document for practitioners on the ground. We aim to have the draft guidance published in time for the Lords Committee stage. The report stands to be reviewed as necessary, of course. That sets out the framework of the clauses, and I will go into more detail on some of the points raised by the hon. Member for Birmingham Yardley and her colleague the hon. Member for Blaydon.

Once again, I emphasise that the statutory duty is to provide support to victims and their children within safe accommodation. Our concern is that new clauses 19 and 20 would apply more broadly to local and other relevant public authorities. The Committee may not be aware that responsibility for the provision of victim support services—including services targeted at perpetrators in order to support victims—has sat with police and crime commissioners since 2014. Local authorities will be bound by the new statutory duty to provide support to victims of domestic abuse residing in safe accommodation within their areas, but responsibility for wider victim support and perpetrator programmes will remain with police and crime commissioners.

Since 2014, PCCs have been funded by the Ministry of Justice to support victims of crime in their local areas and to address the specific needs identified in their local communities. That funding totalled some £68 million in 2019-20. PCCs have unique insight into the crime profiles and demographics of their local areas and thus the ability to allocate funding to those victims in need. Their autonomy to fund victim support services to meet local need should be preserved.

To create a duty that is workable and takes advantage of the considerable knowledge of local and public bodies, it must be placed on the specific authority that holds responsibility for particular services. Just as the new duty in part 4 will apply only to tier 1 local authorities, the commissioning of support for victims in the community must remain with PCCs and, in some cases, clinical commissioning groups. Interventions with perpetrators in the community must remain with PCCs, local authorities and, in some cases, CCGs. There is a variety with community-based services that there is not so much with refuge accommodation.