Domestic Abuse Bill

Baroness Bull Excerpts

2nd reading & 2nd reading (Hansard) & 2nd reading (Hansard): House of Lords
Tuesday 5th January 2021 Lords Chamber

[Baroness Bull (CB)]

My Lords, we have already heard today how the pandemic has escalated an existing crisis of domestic abuse. In the three months from March, the charity Refuge reported a 66% increase in helpline calls and a 950% rise in visits to its website; domestic homicides doubled in three weeks alone. Today’s return to lockdown is for some a return to living in fear and under threat, underlining the urgent need for the greater protection the Bill will provide, particularly for women and children.

With almost 789,000 children in England exposed to domestic abuse, it is right that they are recognised in the Bill as victims in their own right. The physical and mental scars that they will carry increase their own risk of criminal behaviour, sexual exploitation and other forms of violence in later life. I welcome the duty on local authorities to provide accommodation-based support, although I share concerns that this must not come at the expense of other community-based provision where 70% of victims find their support. I also welcome Clause 65 outlawing the so-called rough sex defence, and the inclusion of economic abuse within the definition. Areas where I would like to see the Bill enhanced include the introduction of a new offence, championed by the noble Baroness, Lady Newlove, of non-fatal strangulation—one of the cruellest tools a perpetrator can deploy, and a strong predictor of future and further harm.

Between 50% and 65% of domestic abuse victims suffer strangulation. It can lead to brain damage, loss of memory and stroke. It is also a particularly gendered offence: 29% of women killed in 2018 were strangled compared to 3% of men, and research points to non-fatal strangulation as the second most common cause of strokes in women under 40. It cannot be effectively covered by the crime of attempted murder as it is not usually an attempt to kill but an attempt to terrorise and control.

The Bill rightly focuses on victims, but sustained change will also depend on changing the behaviour of perpetrators. Brazil offers an example of a country where domestic abuse law now includes mandatory rehabilitation and psychosocial support for perpetrators. A pilot programme in São Paolo saw offenders spend 10 three-hour sessions discussing issues such as the evolution of women’s rights, the need for domestic abuse laws, toxic masculinity and anger management. For many, it was the first time they had ever discussed their attitudes towards women, and recidivism fell from 65% to 2%. So, I fully support calls for a perpetrator strategy to guide future investment in rehabilitation and to ensure evidence-based perpetrator interventions are widely available.

The Bill makes important strides forward but it can never be adequate to its task unless it provides equal protection for all women, including black and minoritised women, deaf, disabled and blind women, homeless women, LGBT+ and migrant women, many of whom face extra barriers to accessing support. I share concerns about those women whose immigration status gives them no recourse to public funds, and I hope the Minister, in her response, will provide an update on the timing of the £1.5 million Support for Migrant Victims pilot scheme, and share her understanding of how it will inform future policy.

Finally, I join others in thanking the Minister for her evident commitment to this Bill, and in thanking all those campaigners and survivors who have brought us to this place. I look forward to working with them and across this House to further strengthen the Bill so that it effectively and unequivocally protects all women and their children from the immediate and longer-term harms of domestic abuse.

Domestic Abuse Bill

Baroness Bull Excerpts

Committee stage & Committee: 5th sitting (Hansard) & Committee: 5th sitting (Hansard): House of Lords
Monday 8th February 2021 Lords Chamber

[Lord Young of Cookham (Con)]

My Lords, my normal reaction to an invitation from the noble Lord, Lord Russell, to sign an amendment on social reform is to reach for my pen, but on this occasion I confess I hesitated—not of course having heard the compelling and moving speech he has just made. This is because, while a member of the other place, I spent 30 days with the Hampshire Constabulary, and a constant complaint was about the number of forms they had to fill in, regarding it as an unwelcome diversion from the prevention and detection of crime.

Amendment 146 would require the chief officer to provide information, presumably on a form, about domestic abuse crimes where the offender demonstrated hostility or prejudice based on sex. A strong case needs to be made for this, to which I will come in a moment. In addition to the requirement to fill in a form, the amendment raises the question as to how a chief officer might judge whether a crime involving domestic abuse might have been motivated by hostility or prejudice based on sex—given that there are varying motives for domestic abuse, as we have heard during earlier debates on the Bill, and often no witnesses.

To get a better understanding of the complex issues behind domestic abuse and hate crime, I went to the Law Commission document referred to by the noble Lord, Lord Russell, called Hate Crime Laws: A Consultation Paper. This is not light reading, weighing in at 544 pages, with a glossary and a foreword but no executive summary. But it did look, as the noble Lord has just said, at broadening the range of hate crimes to other categories, of which sex was one.

The relevant chapter for this debate is chapter 12, which looks at extending existing protected characteristics to gender or sex. It is 48 pages of closely argued and sympathetic analysis, which ends with a provisional recommendation, followed by a question:

“We provisionally propose that gender and sex should be a protected characteristic for the purposes of hate crime law. Do consultees agree? We invite consultees’ views on whether gender-specific carve-outs for sexual offences, forced marriage, FGM and crimes committed in the domestic abuse context are needed, if gender or sex is protected for the purposes of hate crime law.”


I appreciate that, as the noble Lord has just said, the amendment does not propose extending hate crime to gender or sex. However, the issues raised by the amendment are similar to those in the Law Commission’s document and, as I shall argue, the amendment offers the opportunity to shed light on the provisional conclusions of the Law Commission, and indeed helps to answer their questions.

To summarise the document, the commission identified three relevant criteria before extending hate crime. The first is demonstrable need—evidence that targeting based on prejudice or hostility towards a group is prevalent. The second is additional harm—evidence that that targeting causes additional harm to the victim, members of the targeted group and society more widely. The third is suitability—whether protection of this group fits within the framework of criminal law, is workable in practice, and is an efficient use of resources.

Again, to summarise, the first two boxes were ticked. On demonstrable need, the commission concluded that there is

“overwhelming evidence that women and girls are targeted for certain crimes”

because of hostility to their gender. On additional harm, it concluded that hostility causes

“harm to the social value of equality and can prevent women’s equal participation in society”

and so causes wider harm to that society.

On suitability, the commission is frankly more cautious. It points to the risk of dividing offences into misogynistic and non-misogynistic, and creating a hierarchy of offences. It also mentions the difficulty of proof. Proof is often difficult enough in domestic abuse cases, but having to prove that the offence was aggravated by prejudice against women could provide an additional hurdle.

The commission also touched on issues relating to resources. Hate crime resources are limited, prosecutions and convictions are down and, as we have heard in earlier debates, support services are under strain. I quote from the Law Commission report:

“In this light, one argument might be that resources for tackling violence against women and girls would be more efficiently spent on increasing access to all survivors, particularly survivors who encounter additional barriers to access such as BAME survivors or migrant survivors.”


This then led the commission to discuss the possibility, if hate crimes were to be extended to gender or sex, of carving out domestic abuse and sexual crimes from gender-based aggravation, as already happens in certain states in America. It conceded that this would lead to a certain incoherence in the law and stated:

“This raises much wider questions as to whether hate crime is the right framework for the criminal justice system to deal with gender-based crimes.”


On balance, the commission proposes that gender should be a protected characteristic, but qualifies this by making it provisional and subject to consultees’ agreement.

Why is this relevant to the amendment, which I support? Because I believe that not going outright to make gender-based crime a hate crime, but suggesting this interim step, helps to answer the questions posed by the commission and provides key information on practicality and suitability. As the noble Lord has just said, the amendment would secure the evidence about the extent, nature and prevalence of hostility towards women and girls, how these interplay with the experience of domestic abuse and the practicality of this proposed extension.

A better understanding of these issues is crucial. As we have heard, 11 out of the 43 police constabularies in England and Wales have made misogyny a hate crime, trialled the policy or are actively considering implementing it and voluntarily filling in the necessary forms—dealing with my initial reservation. The amendment would broaden the base by requiring all police forces to do this and so it would add to our understanding of the nature of violence against women and so how work to end it might be accelerated. If we go down this path, I hope the Minister will do this sensitively and cautiously, taking on board the points in the Law Commission reports. If carried, the amendment would be an important addition to this progressive piece of legislation.

[Baroness Bull (CB)]

My Lords, I rise to speak in support of this amendment, and I thank the noble Lord, Lord Russell of Liverpool, for his comprehensive introduction. It may be hard for some people to fully comprehend the role that misogyny and sexism play in the lives of women and the extent to which it permeates our every day: from offhand pejorative language that belittles feminine characteristics and female achievements, through lazy gender-based assumptions about preferences, capability and behaviours, to uniquely gendered insults and slurs.

At one end of the spectrum are behaviours and attitudes that might be considered by their perpetrators to be gallant or even protective of the “fairer sex”—what some researchers characterise as “benevolent sexism”. At the other end is the hostile sexism of overtly negative stereotypes and antagonism towards women; the kind of sexism that sees gender equality as attack on masculinity and the kind of sexism that is known to represent a significant danger to women.

We worry, with good reason, about social media platforms creating environments for this kind of misogyny. Indeed, research from the University of Pennsylvania on just one social media platform located more than 2.9 million tweets in one week containing instances of gendered insults. That averages 419,000 sexist slurs per day. That data is from 2019; we can only imagine that today’s figures might dwarf that number.

But perhaps we should worry more about the fact that this online aggression simply mirrors traditional stereotypes and attitudes towards women—a hostility based on sex that women experience everywhere: at school, at work, on public transport, in taxis, on the street and of course at home.

Research from Brazil and Turkey into the connection between sexism and domestic abuse shows a positive correlation between sexism and attitudes that legitimise abuse in intimate relationships. Put simply, men who hold sexist beliefs are more likely to translate them into actions through the use of coercion and force. The researchers make the point that, although benevolent sexism might be thought to promise some kind of protection for women as the perceived weaker sex, in fact this promise rings hollow. It found that benevolent and hostile sexism acted in a carrot-and-stick combination, with protective affection a reward for compliance, and abuse and violence the stick employed should the woman fail to fall into line.

Of course, the impact of sexism and misogyny within the home is doubly worrying. Not only does it have a grave impact on the abused partner; it is also likely to be witnessed and internalised by children, influencing their behaviours and expectations in their adult lives.

The noble Lord, Lord Russell, talked about the lack of knowledge about the experience of victims—the wisdom from their perspectives. This lack of focus is evident in the literature. There is a significant gap in our knowledge about how women experience misogynistic hate crimes. A Swedish study from September 2020 aimed to fill that gap, drawing from a sample of 1,767 female students. It showed that women with experiences of misogynistic hate crimes are more likely to be subjected to sexual harassment and repeat victimisation. They consistently report higher levels of a fear of crime and higher rates of anxiety, depression and stress.

The research supports the thesis that misogynistic hate crime is what is often called a “message crime”. Its negative effect extends far beyond the direct victim, because the offences spread fear and insecurity within entire minority communities and contribute to the marginalisation of particularly vulnerable groups.

As we have heard, this amendment would lead to the gathering of more data about the extent, nature and prevalence of sex-based hostility towards women and girls, and this would improve our understanding of how this intersects with domestic abuse. The very act of collecting this data would likely have benefits in itself.

As the noble Lord, Lord Young of Cookham, said and as we have heard, 11 out of 43 police constabularies in England and Wales already identify misogyny as a hate crime or are considering doing so. The increased rate of reporting in those areas suggests overall improvements in the ability of officers to identify these crimes but also increased confidence levels among women to come forward and report them. Requiring all police forces to follow their example would allow the capture of data on a national scale, supporting the gathering and analysis of evidence, revealing the patterns and extent of women’s experiences, and, ultimately, enabling the development of strategies that would protect women and girls from being targets of crime on the basis of their sex.

[Baroness Burt of Solihull (LD)]

My Lords, I thank the noble Lord, Lord Russell, for his very clear introduction and explanation, and the noble Baroness, Lady Bull, for her description of misogyny.

As we have heard, the amendment would require guidance to take account of the role that hostility against a particular sex plays in domestic abuse cases. It would also require the police to collect data on the number of relevant hate crimes based on sex and on how many of them are misogyny or misandry related. As the noble Lord, Lord Young of Cookham, said, the picture is patchy to say the least.

The problem is that currently all but four police forces do not record crimes based on misogyny or misandry, although I totally accept the wise words of the noble Lord, Lord Russell of Liverpool, about how the picture needs to be built up. As the noble Lord, Lord Young, said, another seven forces are thinking about recording such crimes, but there are 43 police forces in total, so we can hardly get a picture of what is happening and of the contribution that these crimes make to domestic abuse in particular. In order to be able to measure and interpret trends in hate crimes, we must have the information; otherwise, how can we know what we are dealing with and how can we build that picture?

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[Lord Kennedy of Southwark (Lab Co-op)]

My Lords, Amendment 146A, proposed by the noble Lord, Lord Young of Cookham, is one I fully support. I would have signed it if there had been a space, but people got there before me. The amendment ensures that someone made homeless as a result of domestic abuse will have priority need for housing support. It cannot be right that a victim is left with the choice of staying with an abusive partner or becoming homeless. That is no choice at all. The amendment would allow the applicant for homelessness assistance to be either a survivor or someone who resides with the survivor—but, of course, not the abuser. Again, enabling somebody else in the household to make an application could be an important protection.

I was delighted to sign Amendment 147, tabled by the noble Lord, Lord Randall of Uxbridge, which would ensure that local connection cannot be used as a restriction when someone applies for housing, either in a refuge, in other temporary accommodation or in longer-term accommodation. This is very important to enable someone to get the help and support they want, to get them near to friends, to get them away to a place where they are not known or to get them wherever they want. It enables those in difficult, dangerous situations to get somewhere where they can rebuild their lives.

I want to thank Women’s Aid and other organisations for the help they have given all noble Lords on this Bill and for their general work. I have always been grateful to Women’s Aid for its advice on a number of issues. The example that the noble Lord, Lord Randall of Uxbridge, gave from Women’s Aid highlights the reason his amendment needs to be agreed—or, if the noble Baroness cannot agree the amendment, I hope she recognises the problem and will try to resolve it by bringing something back on Report.

In our discussion last week, we looked at the risks to victims, at home or at work, of being murdered. We have to ensure that, if somebody leaves a relationship, they can get somewhere they are safe and can rebuild their lives. It might be that they want to move to a completely different part of the country where no one knows them at all. Some victims have to completely cut off contact with abusers, because some abusers would do their damnedest to find somebody. We know people can choose not to be on the electoral register and that there is anonymous registration, but what shops they go to and where their families and friends are will still be known, so we have to ensure that people who want to can get away completely and start life afresh. That is why the noble Lord’s amendment is so important—so that no local authority can suggest, “Oh, you can’t come here because you’ve got no connection”. “That’s exactly why I want to come here—I’ve got no connection.” That is a really important issue. I look forward to the response from the noble Baroness at the end of the debate.

[Baroness Bull (CB)]

My Lords, I rise to speak briefly in support of Amendment 146A, so ably introduced by the noble Lord, Lord Young of Cookham. Like him, I welcome the extension of automatic priority-need status for housing to survivors of domestic abuse, but I share his regret that there is no current right for anyone who lives with the survivor, or might reasonably be expected to live with them, to apply for this assistance on their behalf. This amendment aims to address this and to ensure that survivors have access to what one has been described as the first and most important priority for anyone escaping domestic abuse—a safe roof over their head.

Domestic abuse is often about control. There is a horrible, perhaps inevitable, consequence when that control is challenged, which is that abusers are likely to become even more violent as they seek to reinstate or retain their dominance over their victim. My noble friend Lady Finlay has already said the risk of domestic homicide is at its highest during separation. Research studies show that the worst incidents of abuse are triggered by the victim having left the abuser, and the abuse is even more extreme if the victim has left for another partner. In such cases, the risk of femicide increases fivefold. Interviews with men who killed their wives in the United States pointed to separation or a threat of separation as the most common trigger for the murder. This means that the difficult decision by a victim of domestic abuse to leave their abuser and seek out support may well result not in the provision of a safe haven but in further victimisation, physical risk and even risk to life.

Front-line services in both the domestic abuse and the homelessness sectors are clear about the potential risks to survivors of abuse in making an application for homelessness assistance themselves. They know that abusers will employ the most varied and creative tactics to track their partner, from using GPS locators in their partner’s phone to calling around women’s shelters or even filing a missing persons report. Front-line workers know that in some cases a call for help may become a death sentence.

This amendment addresses this risk and provides an important safeguarding mechanism by allowing an ally to fill in the application, thus allowing victims of abuse to make plans without running the risk of those plans, or the location of their future home, being discovered by their abuser. It has the backing of Women’s Aid and of the APPG for Ending Homelessness. I urge the Government to listen carefully to their arguments and to the arguments in your Lordships’ House and to adopt this amendment so that survivors of domestic abuse have a clear legal route to that most basic of needs—a safe roof over their heads.

[Lord Cormack (Con) [V]]

My Lords, I am delighted to follow the noble Baroness, Lady Bull. I agree with all she said and give my unreserved support to both these amendments.

In a long Committee stage, some amendments are, very properly, probing amendments. Others stand out as improving amendments. I really hope that this amendment, so eloquently moved by my noble friend Lord Young of Cookham, and the amendment in the name of the noble Lord, Lord Randall of Uxbridge, will be incorporated into the Bill. Perhaps there will have to be the odd change of word, but I have referred to the Bill on a number of occasions as a landmark Bill, and a landmark Bill, in this area, has to be able to deliver as near perfect, total security as it can.

In common with many constituency Members of Parliament, I saw young women—they were mostly young women—who had been harassed, bullied, tormented and beaten, who needed somewhere to go. They needed a safe and secure refuge. In the immediate future that was often a home of refuge, where others were similarly placed. But what they needed most of all, as they came out of the trauma they had suffered, was a secure permanent home. Very often, for the reasons given by my noble friend Lord Randall of Uxbridge, that had to be some distance from where they had suffered.

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This is a most unsatisfactory situation and no Member of this House should be satisfied with it. Therefore, if we cannot get this resolved in the next few weeks, we are going to have a vote on Report—I can promise the House that. We are finally going to deal with this issue in this House. I hope that the Minister can give us some hope today about resolving this; otherwise, I will add him to my list of Ministers who have expressed support but have not actually done anything about it. I look forward to his response.

[Baroness Bull (CB)]

My Lords, I am grateful to the noble Lord, Lord Kennedy of Southwark, both for introducing this amendment, to which I have signed my name, and for his persistence, as we have heard, in raising this issue in this House and beyond.

The decision to leave an abusive relationship may be among the hardest choices a person will ever make. However cruel the relationship and however damaging its impact, breaking away cuts a bond. It may be the only type of connection that that person has ever known. Sometimes, the relationship is just one in a lifelong pattern. The person brave enough to make that break needs all the support they can get, but too often they encounter barriers, including those related to access to legal aid. Without it, many abuse survivors are unable to challenge the perpetrator through the courts, yet eligibility for such aid is based on the requirement to provide evidence of abuse. It is hard to imagine the pain of reliving the situations of abuse, the shame it can entail and the difficulty of disclosing details of that abuse to different professionals and services over and over again. It is not hard to see why this is something that many victims will never do.

As we have already heard, research from the Ministry of Justice identifies a number of barriers faced by individuals in providing the evidence of their abuse that they need to unlock support. These include difficulties in gathering evidence if the victims do not disclose the violence at the time to those organisations that are recognised as able to supply evidence. Language barriers can be an issue; data protection issues can be a problem; and, of course, as we are discussing with this amendment, the financial costs of acquiring certain pieces of evidence —and the unwillingness on occasion of organisations and health professionals in particular to provide a letter confirming that abuse has taken place—can be a barrier. Taken together, these issues can be the determining factors in a victim’s ability to access legal aid.

This Bill now includes economic abuse in the definition of domestic abuse, recognising that the ways in which one partner seeks to control and abuse the other often include the control of household and personal finances. Therefore, if there is a financial cost to securing a GP’s letter attesting to the fact that abuse has taken place—as we have heard, it is a letter that can cost up to £150—this could push this vital piece of evidence beyond the reach of survivors. Accessing the money from bank accounts that are scrutinised by the partner might alert the abuser to the fact that the victim is in the process of seeking support, which puts them at further risk.

This amendment would remove what might be a crucial block to victims accessing justice. It is supported by the domestic abuse commissioner for England and Wales. The British Medical Association, as we have heard, has tried to address this issue through guidance, but this has not achieved the aim. This Bill provides the opportunity to put a definitive stop to these charges and ensure that a lack of financial resources is not a hindrance to survivors who are brave enough to try to escape from the perpetrators of domestic abuse.

[The Lord Bishop of London [V]]

My Lords, I add my voice to this amendment simply because it should go without saying that some things need to be penned into law for there to be consistent access to justice. Amendment 161 has been tabled because it prevents GPs charging survivors of domestic abuse for letters which confirm injuries they have suffered—evidence which survivors need for their legal aid applications. The case for this amendment has been extremely well made by the noble Lord, Lord Kennedy, and the noble Baroness, Lady Bull. I agree with the statements they have made, so there is no need to add much to what has been said.

There should be no gatekeepers when we consider the path to justice, not least from those who are on the path to help facilitate it. As we have heard, the British Medical Association has recommended that patients should not be charged for medical evidence when seeking it for legal aid. I too stand by this, by virtue of calling for this amendment to be included in this Bill.