Reproductive Coercion

Jim Shannon Excerpts

Tuesday 24th March 2026 Westminster Hall

[Natalie Fleet]

Absolutely; I think that this is something that we need to shine a light on however we can. Far too many women are traumatised by family courts in this way—the situation is absolutely ripe for intervention.

[Jim Shannon (Strangford) (DUP)]

I commend the hon. Lady for bringing forward this issue. She has strength of character, strength of personality and commitment to these subjects; it is always a pleasure to come along and hear her express her viewpoint, and I congratulate her. Just to be helpful to her—I did speak to her beforehand—she may only now be aware that in Northern Ireland, conviction on indictment for domestic abuse and coercive control can lead to up to 14 years’ imprisonment, while in England and Wales the same offence receives just five years’ imprisonment. Does she agree that coercive control demands its own legislation—equally applied, with equal severity— across the whole United Kingdom of Great Britain and Northern Ireland?

[Natalie Fleet]

I absolutely agree; the hon. Member makes very good points that I did not know about. The more we can talk about this issue, the better, and making it a stand-alone offence is absolutely the right thing to do.

It is easy to dismiss Liv’s as a story of extreme wealth, power and faraway places, but the reason I raised it, and the reason it is so important, is that so many women will see this story as theirs. If we do an internet search about reproductive coercion, the stories are there. Liv has shared her story on social media, and women have commented underneath saying, “This happened to me.” Women are having their bodies controlled by men: some forced to get pregnant, others forced to have an abortion. Both are examples of reproductive coercion—deliberate attempts to dictate a woman’s reproductive choices or interfere with her reproductive autonomy.

A recent poll of 1,000 women showed that 50%—half of them—had experienced some sort of reproductive coercion. It is happening to women we know, every day. A third of those women had felt pressured to have sex without contraception, 10% had had their contraception sabotaged and 15% had been forced to terminate a pregnancy that they wanted to keep.

The principle of reproductive coercion is recognised in law. If someone knowingly passes on a sexually transmitted disease, it is assault. If a condom is removed without consent—known as stealthing—it is rape. However, that principle has not been applied in the Nervo case, and that case is not an isolated one. Reproductive coercion is always about patterns of controlling behaviour, not just one act, which is why there is inconsistency in the application of the law. If our courts are presented with clear evidence of coercive behaviour that has resulted in pregnancy, yet decline to recognise or name it, we are left with a gap not just in terminology, but in protection.

Reproductive coercion is covered by both the Domestic Abuse Act 2021 and the Serious Crime Act 2015. Statutory guidance for the Domestic Abuse Act states that abuse within a family set-up can include

“reproductive coercion (and as part of this, forced abortion).”

According to the statutory guidance, reproductive coercion can involve

“restricting a partner’s access to birth control…refusing to use a birth control method…deception regarding the use of birth control including falsely claiming to be using contraception…forcing a partner to get an abortion, IVF or other related procedure; or denying access to such procedures.”

The Serious Crime Act details similar guidance and gives the same examples. The maximum penalty for the offence of controlling or coercive behaviour in an intimate or family relationship, including reproductive coercion, is five years in prison. In the year ending March 2025, nearly 50,000 cases of coercive control were recorded by police in England and Wales, yet reproductive coercion remains unprosecuted—not because it is not happening, but because the Crown Prosecution Service does not record that it is. The term reproductive coercion now exists in guidance and policy, but it has no clear home in law.

What are we asking for? First, we want an acknowledgment that cases like Liv’s occur and need exposing in the public interest. As lawyers have said:

“Legal reform in the area of sexual deception is not straightforward, either legally or in social terms. Indeed, the law is unlikely to move forward in a meaningful way until the wider public debate on such issues is also able to progress and mature.”

That is not enough. We need the offence to be seen in the eyes of the law. While I have spoken about reproductive coercion being mentioned in the statutory guidance for two of our laws, in the CPS’s policy, in safeguarding manuals and in a few judgments, we want to see it given a place on the statute book. There needs to be a clear route for investigating it as a crime, charging offenders and protecting victims.

The question before us is not whether reproductive coercion exists—we know that it does—but whether our systems are prepared to recognise it where there is evidence. When a condom is removed without consent, it is recognised as rape; when a disease is knowingly transmitted, it is assault; but when a woman is deliberately impregnated through deception and control, the abuse is not clearly named, prosecuted or safeguarded against.

Liv has described reproductive coercion as our wombs being hijacked, our futures being derailed with our children ultimately the victims, and our nervous system and trust in the world shot. There are cases like Liv’s where the evidence is present, and yet it is still not being named. That must change. My ask of the Government is for clearer recognition of reproductive coercion in the law. We need greater awareness and training to ensure that coercive behaviours—particularly those involving deception and reproductive autonomy—are properly understood. We need to ensure that patterns of behaviour are examined, not dismissed, and that individuals who raise legitimate concerns are not penalised for doing so. No woman should hear the words, “I was going to tell you after you had the baby,” and have that dismissed as something that does not require recognition. Without recognition, coercion cannot be addressed.

No change has ever happened via the state alone. As important as my previous asks were, my final ask is to women—women in the Public Gallery and women out there listening to this debate. If there is any element of what has been said today that is happening to you, reach out. You are not alone. You are surrounded by women going through exactly the same, not calling it out, feeling fear and shame, and feeling like they cannot speak. We regain control by speaking out and reaching out. That is how Liv and I connected in the first place.

Liv and Mim got in touch after hearing me on “Woman’s Hour”. I remember that interview vividly. I thought I was going to faint beforehand. I hugged the show runner, and that gave me the strength to carry on. The presenter was so lovely, and I spoke up despite being full of fear and shame. That shame never belonged to me, but I needed to undo a lifetime of society telling me that it did. When I spoke up, women heard me—women I had never met or crossed paths with. I met them and found out that one of them had been traumatised in ways that I had never even thought of. They are now speaking out too, and that has power.

Every time somebody speaks out about abuse—abuse that happens regularly, and abuse that happens equally as much but we have never heard of, as it is better hidden—we are heard by somebody who can support us or by women we have never even met who have been through the same or other forms of abuse that also need shouting about. For too long, we as women have been condemned to silence, and silence is where abuse thrives. If we instead use our voices, speak out and say, “This is not okay,” allow others to believe us and support us, and encourage survivors to come together—because nothing achieves change like an army of angry women—we can come together and force that much-needed change.

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

It is a pleasure to serve with you in the Chair, Mr Dowd. I thank my hon. Friend the Member for Bolsover (Natalie Fleet) for bringing forward this really important debate. To echo the hon. Member for Strangford (Jim Shannon), she always uses her voice in this place to amplify the voices of those who have been silenced. I am truly in awe of her; I find her an inspiration.

This is an important debate. It matters because controlling or coercive behaviour is one of the most harmful, least visible and most misunderstood forms of domestic abuse. It causes deep and lasting harm, yet is so often difficult to recognise, disclose and even evidence, both for victims and the professionals who are meant to support them. Before turning to the substance, I acknowledge the lived experience that has helped bring the issue into sharper focus. I understand that the survivors and campaigners Olivia and Mim Nervo have worked with my hon. Friend the Member for Bolsover and other parliamentarians in the Chamber to raise awareness of reproductive coercion and post-separation abuse. I am so grateful that lived experiences have helped prompt this debate.

I also put on record my personal thanks to Olivia and Mim for meeting me today. Olivia’s story is so moving. What she has been through is horrific beyond measure, and I sincerely thank her for speaking out, because undoubtedly she will have helped many other women who are sadly in the same position. It takes courage to speak out in that way and campaign for change. However, I must be clear about one boundary: I cannot comment on individual cases, court decisions, or any ongoing investigations. That is not for lack of concern—quite the opposite—but about respecting the independence and integrity of our justice system. I can, however, speak directly to the system issues that the debate raises.

As we have heard, reproductive coercion is a form of controlling or coercive behaviour. It involves using power and control to interfere with a person’s reproductive autonomy—something that should belong to the individual alone. The statutory guidance on controlling or coercive behaviour already recognises reproductive coercion, and includes behaviour such as restricting access to contraception, refusing to use contraception, forcing pregnancy, deception about contraception, or forcing or denying access to abortion, IVF or any other reproductive procedure.

Reproductive choice is a basic human right. We understand the long-term emotional, psychological and sometimes physical harm that this abuse, or the denial of this right, can cause. We also recognise how difficult it can be for victims to identify and disclose this type of abuse, particularly when it occurs within an intimate relationship or alongside any other form of control. This is not about isolated incidents. Reproductive coercion is often part of a wider pattern of coercive control, which could also include emotional, economic, sexual or physical abuse.

To understand reproductive coercion, we must first understand how coercive control-type abuse operates. It is about domination, fear, and the gradual erosion of someone’s autonomy. It includes isolating someone from friends and family, depriving them of basic needs, and enforcing degrading rules monitoring movements, controlling finances or taking control over everyday decisions. Sadly, that is not an exhaustive list, because abuse adapts to the victim’s circumstances. Victims may not recognise what is happening to them as abuse until the pattern becomes clear, sometimes years later. That complexity places a responsibility on us all to ensure that our systems are equipped to recognise patterns, not just incidents.

Controlling or coercive behaviour has been a criminal offence since 2015, under the Serious Crime Act 2015. The Domestic Abuse Act 2021 strengthened the framework by explicitly recognising controlling or coercive behaviour as domestic abuse, and by extending the offence to ex-partners and family members who do not live together.

[Jim Shannon]

I thank the Minister for her positive response to the hon. Member for Bolsover (Natalie Fleet). The Minister obviously understands the issue very clearly. In my earlier intervention, I gave the example of Northern Ireland, where the sentence for coercive behaviour is 14 years. Over here on the mainland, in England and Wales, the sentence is only five years. Would the Minister and the Government consider strengthening the sentence to make it similar to that in Northern Ireland, ensuring that the time fits the crime?

[Alex Davies-Jones]

I thank the hon. Gentleman for raising the distinction in the sentencing for this crime in Northern Ireland. In England and Wales, the sentence is a maximum of five years, but as I have said, the crime normally comes alongside other forms of abuse, for which the CPS will look to charge and seek the highest sentence. Sentencing is an independent judicial matter—it is for the judge to determine—but as I have said, coercive behaviour is part of a pattern, and we need to get the framework right for agencies so that they can support victims and survivors.

The changes that were made were vital. They recognise the reality of post-separation abuse, and abuse by family members outside the household. They offer protection to victims who continue to experience coercive control long after a relationship has ended. Although I cannot comment on any individual case, it is right to reflect on the system-level issues that have been raised by campaigners here today. The concerns shared with the Department by many survivors include the impact of prolonged family court proceedings, post-separation abuse continuing through legal processes, and the distress caused by long delays and uncertainty in criminal investigations into coercive control.

There are also serious questions about how mechanisms that are intended to support confidence in the justice system, such as transparency and privacy provisions, can in some circumstances be experienced as silencing or controlling. Those concerns underline a central point: our justice system must never become a tool through which victims are abused even further. It must be there to protect victims and not compound harm. To echo the points raised by my hon. Friend the Member for Walthamstow (Ms Creasy), I totally agree that this is something that Baroness Levitt, the Minister in the other place, will look at in relation to family court reform.

This debate sits squarely within the Government’s wider mission to tackle violence against women and girls. The scale of violence against women and girls in this country is intolerable. The Government are treating it as a national emergency, with a clear ambition to halve the levels within a decade. Our “Freedom from violence and abuse: a cross-government strategy”, published in December, sets out how we will prevent abuse, pursue perpetrators and support victims. Addressing controlling or coercive behaviour, including reproductive coercion, is central to delivering that ambition.

Since controlling or coercive behaviour became a criminal offence in 2015, the police and the CPS have been working hard to improve how they recognise and respond to it. Those trends are improving year on year: last year, police recorded more than 54,000 offences and CPS prosecutions have gone up by 38% compared with the previous year, to more than 1,500 defendants prosecuted. However, we recognise that more needs to be done about understanding controlling or coercive behaviour, which has evolved significantly since the statutory guidance was last published in 2023. That is why the Government have committed to updating the guidance on controlling or coercive behaviour by the end of this year.

The updated guidance will reflect the latest policy and practice, including clearer recognition of reproductive coercion. This is about supporting frontline professionals—police, prosecutors, health professionals and others—to identify abuse early, gather evidence more effectively and support victims through the criminal justice process.

More than anything, education must be central to prevention. Through relationships, sex and health education, we will help children and young people understand healthy relationships, consent and controlling behaviour from an early age. We are backing that with practical support for schools and parents. We are investing in teacher training, bringing in external expertise when needed and tackling harmful behaviours, such as teenage relationship abuse.

In health settings, women are rightly routinely asked about domestic abuse in private, during antenatal care, for example. If abuse is disclosed, women should be offered support, help with safety planning and access to specialist services. Abortion providers are required to be trained to spot signs of coercion or abuse and respond appropriately. We are also strengthening how health professionals respond, through the violence against women and girls strategy, through improved safeguarding training, and with the steps to safety programme in general practice.

Supporting victims to recover and rebuild their lives from abuse is a core priority. More than £1 billion is being invested over the next three years to support victims of violence against women and girls, including domestic abuse survivors. That includes funding for safe accommodation, advocacy, counselling and specialist services. In particular, my Department is increasing funding for victim support services year on year from 2026 to 2029, recognising the need to meet the rising cost pressures of delivery. In total, the Ministry of Justice will invest £550 million in victim support services over the next three years of the spending review period.

This debate highlights why controlling or coercive behaviour, and reproductive coercion in particular, must be taken seriously at every level. Reproductive coercion is coercive control and domestic abuse. Addressing it is essential if we are to deliver our ambition to halve violence against women and girls in a decade.

I again acknowledge and place on record my sincere and incredible gratitude to the survivors and campaigners whose experience has brought urgency and clarity to this issue. We will continue to work across Government, and with all of you and with our partners, on this guidance and our practice to ensure that our system accurately reflects the reality of this abuse, so that we can deliver justice and safety for victims.

Question put and agreed to.