Domestic Abuse Bill

Lord Bourne of Aberystwyth Excerpts

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

So, as I say, while the Bill is admirable in offering extensive and enlightened measures to tackle domestic abuse and offer help to many of its victims, the limits placed upon its reach by the narrow definition of “personally connected” seem to me to represent a wasted opportunity to do much more for many who need and deserve its protection. While some of these amendments perhaps need finessing, I believe the Government would do well to take them further.

[Lord Bourne of Aberystwyth (Con) [V]]

My Lords, it is a pleasure to follow the noble Lord, Lord Marks of Henley-on-Thames. I find myself in broad agreement with what he said about the need to broaden the categories of “personally connected” as set out in the Bill.

My first reaction on reading this part of the Bill was that we certainly need to be more inclusive of other relationships. My second reaction, I must admit, was that there were some relationships that should probably be excluded, as they would dilute the impact of the focus of domestic abuse legislation. For example, the relationship of landlord and tenant, without more to support a clear connection between them in a domestic setting, should not be within the scope of the Bill per se. I think that was a point was touched on by the noble Baroness, Lady Hamwee.

Amendment 6, in the name of the noble and learned Baroness, Lady Butler-Sloss, would extend the legislation explicitly to guardians. I listened carefully to what the noble and learned Lord, Lord Morris, and the noble Baroness, Lady Hamwee, said, about the fact that this is probably, or may well be, covered by the legislation. I suspect that is true in relation to children in Clause 3, but I think it does not deal with the situation between A and B in Clause 2. I think that was the point the noble and learned Baroness was making, unless I am mistaken. Maybe I have misunderstood that; I look forward to hearing what my noble friend the Minister and, indeed, the noble and learned Baroness, in concluding this part of our discussion, say in that regard.

But it seems to me that guardianship certainly needs to be included quite obviously for both areas. I just wonder whether it should cover the situation where A or B has been a guardian and is no longer a guardian, because I would expect the close nexus—the close relationship—to continue.

I have much sympathy with the case put forward on Amendment 7, in the names of the noble Baronesses, Lady Wilcox of Newport and Lady Watkins of Tavistock, and my noble friend Lady Altmann; with Amendment 11, in the names of the noble Baronesses, Lady Grey-Thompson and Lady Finlay of Llandaff, which was so ably, emotionally and correctly supported by the noble Baroness, Lady Campbell of Surbiton; and Amendment 12, in the names of my noble friend Lady Altmann and the noble Baroness, Lady Wilcox.

Essentially, consideration of this part of the Bill relates to what relationships the domestic abuse legislation should cover. Like the noble Lord, Lord Marks of Henley-on-Thames, I think that the starting point should be: would we want to exclude anything where people are in the same household? As I said, some relationships, such as landlord and tenant, should maybe be excluded, but otherwise I see no reason to exclude anything where there is a close and trusted relationship, as there would be in the context of carers. Indeed, we really should recognise the realities of abuse today and the society in which we live, and that, in this pioneering piece of legislation, we are setting out the principles and frameworks of the law in this area for years to come. We should get it right and be bold.

I say that too in the context of Amendment 8 on forced marriages, so ably set out by the noble and learned Baroness, Lady Butler-Sloss. Some of the scenarios may possibly be caught by the Bill’s provisions where a forced marriage has already taken place, but there might be problems if the marriage was null and void . Clearly, it does not cover the situation where the marriage has not yet taken place. There is a very powerful, almost unanswerable, case to extend the definition of “personally connected” to cover this situation.

The same is true of Amendment 9, on domestic servitude, tabled by the noble and learned Baroness and by my noble friend Lord Randall of Uxbridge. No doubt there are provisions in modern slavery legislation to deal with that scenario, just as there would be provisions relating to forced marriage and so on, but there is a powerful case for extending the protection and all the measures of the domestic abuse legislation to these situations.

As I said, we need to recognise the realities of life in Britain and the country we are governing today. I will listen to my noble friend’s response with interest, but there is a clear case for extending the definition of “personally connected”, which we are debating.

[Lord Blunkett (Lab) [V]]

My Lords, it is always a great pleasure to follow the noble Lord, Lord Bourne. I find myself on the horns of a dilemma. At Second Reading, I tried to set out how important it is that this legislation encapsulates, as far as we humanly can, all the possibilities that, if not included, would be felt to have let down the people we seek to help in years to come. I used the example of the first effort back in 2003, in the domestic violence and victims Act, for which I was responsible as Home Secretary, where we clearly took a step forward but a very tentative one. I am grateful to the noble Baroness, Lady Bennett, for understanding and supporting what I was trying to say.

My dilemma is this. While I very clearly understand the thrust of the amendments and the critical nature of getting right the definition of “personally connected” to make the Bill work and watertight, and to enable the Crown Prosecution Service and the judiciary to use it as an effective tool, there are real dangers in some of the amendments—not in the essence of what is sought but in the extent to which they make it difficult to decide which Act is to be used, first by the police in filling in form 124, then by the Crown Prosecution Service, and subsequently in our adversarial court system, where a substantial case has been made and knocked down because of the detailed nature of the definitions involved.

So I have some sympathy, as I normally have, with the Minister in how to get this right. For instance, I agreed wholeheartedly with the description given by the noble Lord, Lord Marks, and with the very thoughtful and powerful presentation from the noble Baroness, Lady Campbell, reflecting the desire of the noble Baroness, Lady Grey-Thompson, to see carers involved, and I cannot see any reason why we cannot involve them. But we then drift into the situation of a friend who regularly comes round to the house and seeks to sexually abuse someone. Surely that would fall under the Sexual Offices Act 2003, for which I was also responsible. The wider you make the definition, the more difficult it will be to get a successful prosecution if you use the wrong piece of legislation.

The noble and learned Baroness, Lady Butler-Sloss, knows more about this than I ever will, because, although I was responsible for trying to develop policy, she had to implement it. It seems that we should try to do what we tried to do recently in another Act: the Minister should, once again, get people to come together to look at how the very sensible amendments being moved this evening can be tightened up, so that the legislation is broad enough to encapsulate the concerns that have, quite rightly, been raised. At the same time, it should not be loose enough to allow a very clever barrister—we have a number of them in our House—to run rings round the prosecution.

Tonight has been an excellent example of how the real concerns that exist out there can be reflected, as were the words of the noble Baroness, Lady Hamwee, in commencing the Committee stage this afternoon, when she referred to the organisations and campaigners, all of whom are helping us to get this legislation right.