Domestic Abuse Bill

Lord Faulkner of Worcester Excerpts

Committee stage & Committee: 2nd sitting (Hansard) & Committee: 2nd sitting (Hansard): House of Lords
Wednesday 27th January 2021 Lords Chamber

The noble Baroness, Lady Finlay, and other noble Lords have, through these amendments, drawn attention to a very important issue in the arena of domestic abuse. I thank all noble Lords for raising it in this debate. I hope I have been able to persuade the noble Baroness of the existing provisions and ongoing work in healthcare, and that the Bill already provides the means for the domestic abuse commissioner and tier 1 local authorities, in the context of the new duty in Part 4, to address the links between substance misuse, mental health and domestic abuse. On that basis, I hope she will be happy to withdraw her amendment.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

I have received one request to speak after the Minister, from the noble Baroness, Lady Boycott.

[Baroness Boycott (CB)]

My Lords, the Committee has every reason to be grateful to the noble Baroness, Lady Finlay, because these are all very important announcements; I thank everyone involved, and it is very good to be speaking to this group. This subject is not just close to my heart but has been part of my life. I was very pleased to hear in the Minister’s response how many things are going to be in place to deal with alcoholism, in particular. I very much look forward to Dame Carol Black’s review—I know how brilliant she is—and I also welcome the news about sobriety tags. I just want to make a few points, some of them personal.

The link between alcohol and domestic abuse is well known, and yet, strangely, it is often not at the forefront of the debate. Some 55% of domestic abuse cases involve alcohol or some kind of substance, and women who drink themselves are 15 times more likely to be abused than women who do not. I am not going to repeat the stats; one only has to read the excellent contribution of the noble Lord, Lord Marks, on Monday night to get a good picture of how solid the evidence is. Drunk people, both men and women, are more likely to abuse or be abused than those who are not. Alcohol itself is not the culprit, and it should never be an excuse for behaviour. However, I believe that it is so tightly woven into the problem that it must be treated as part of the recovery process.

I am very glad that, as a result of the Bill, the crime of domestic abuse will be better dealt with and we will have more refuges. I also welcome the commissioner. But if we do not study, understand and treat alcoholism, then we are not doing our job.

Alcoholics, when they are drinking and when they are addicted to alcohol, are really difficult to deal with. Alcohol, as people say, is both cunning, baffling and powerful. I know that, in my life, I have drunk to excess. I do not drink now and I have not done for many years, but alcoholism will be with me for the rest of my life. It is very hard to break that cycle without help, and there are far too few treatment centres in this country. I know—again, from my own experience and that of people I know—that doctors and general hospitals do not like disruptive alcoholics, who are really hard to treat and who take up beds. They sober up and are then sent back into the world, where they start drinking again. People, especially women, keep alcoholism a secret. It is seen still as an issue of shame in this country, which is one reason I have always spoken publicly about it, throughout my life.

If we do not stop the cycle, the same thing happens again. Abuse is a spiral, in much the same way as addiction, and a drunk abuser will seek a victim. A woman who drinks herself and who has, probably as a consequence, the lower self-esteem that goes along with it, will almost inevitably partner up with the kind of bloke who will, ultimately, abuse her. That is what you do when you think you are not worth anything, because you are the person in our society who cannot handle alcohol like everybody else does.

Personally, I cannot think of a more difficult thing—it is almost impossible—than to be a woman with kids who is the victim of domestic abuse and a drinker herself. Yes, the council may find you a refuge, but, when that is over and you have to go back to the world, if you do not have some solid help to get through that addiction, you are going to end up back where you were, and the saga goes on and on.

The need to break this cycle must be a fundamental, core part of the commissioner’s remit. She needs all the expertise to support her and she needs money to enable her to make the right decisions. No one in their wildest miseries or nightmares would want to be addicted to any substance, from a bottle, a needle or a pill—it is a misery you would not wish on anyone. But once there, it takes some time and patience. I have been lucky; I have been able to afford the help I needed, but this should not be an issue of money.

As the noble Lord, Lord Hunt, said earlier in this debate, deep cuts have been made to addiction services in this country since 2013-14. It means that the 8.4 million potentially high-risk drinkers—that is an awful lot—and the hundreds with opiate addictions, are not getting the right help. It is an insane situation, because for every addict or alcoholic, it is reckoned that at least five people are swept into the madness and distress. It costs money: to the NHS, to the criminal justice system and to society.

WHO figures suggest that 50% of men who kill their wives are drunk or addicted. Helping people who drink or abuse substances through to the other side—through to a chance, literally, to rejoin the world as a useful member of society—would bring so many great benefits. As the noble Baroness, Lady Finlay, spoke so wonderfully about on Monday night, so many children would have their lives transformed. As she said, the Commission on Alcohol Harm heard from children who were terrified to go home for fear of what their parent or parents might do. The Children’s Commissioner estimates that there are more than half a million children living in households where domestic abuse, along with drink and substance abuse, is prevalent.

The alcohol lobby is big and powerful. It has successfully fought demands for minimum pricing in England—though it lost in Scotland—a measure that is known to reduce harmful consumption. This stuff is everywhere. Adverts are well targeted, promising thrills and excitement, and they all too often use sexualised images of women to encourage purchase. This ought to stop. I am the last person who wants to see alcohol sales restricted in any way, but I am convinced that we cannot keep shoving this big problem to one side. Domestic abuse and alcohol are linked, and unless we break the addiction cycle, we will not break the other. We can no longer condemn both the victims and the abusers—who are, in my mind, sometimes also victims—to the shadows.

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Amendment 21 withdrawn.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

We now come to the group beginning with Amendment 22. I remind noble Lords that anyone wishing to speak after the Minister should email the clerk during the debate. Anyone wishing to press this, or anything else in this group, to a Division must make that clear in debate.

Amendment 22

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In conclusion, I do not want any other body to follow the poor example set by your Lordships’ House. These amendments would help to ensure that that does not happen. That is another reason they are so important to the victims of domestic abuse who have, like me, speech, language and communication needs, and why they deserve a substantive and considered response from the Government.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

My Lords, the noble and learned Baroness, Lady Butler-Sloss, has withdrawn from this debate, so I call the next speaker.

[Baroness Whitaker (Lab) (V)]

My Lords, I speak in support of this whole group. I declare an interest as a vice-chair of the All-Party Parliamentary Group on Speech and Language Difficulties, a patron of the British Stammering Association and, indeed, as a stammerer myself. Stammering is often not recognised as a disability, but depending on its intensity, it has profound effects, particularly on children’s ability to cope with stress and to develop, and it is exacerbated by domestic violence. I am indebted to the Royal College of Speech and Language Therapists for its research.

I will only add to the comprehensive and persuasive speeches by those noble Lords who have spoken to these amendments that in connection with support for communication needs generally in good practice, stammerers have difficulty in reporting traumatic events and in accessing services at the first contact when this is often by telephone. Inclusion of speech and language therapists on domestic abuse partnership boards and in local authority responses in their strategy is of particular benefit to victims who stammer, especially if the role of the therapist is to consider initial access to services.

In respect of guidance on the psychological impact of domestic abuse, in particular on children’s speech and communication, there is evidence that children who are exposed to domestic violence have a greater propensity to develop speech and language difficulties, thus harming their life chances thereafter. For instance, court proceedings can add intimidation and stress, which make these amendments of great importance in alleviating the damage caused by domestic abuse.

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All noble Lords who have contributed to this debate have drawn attention to an important issue. I hope I have been able to reassure them that the Bill already provides a framework to ensure that the speech, language and communication needs of victims are addressed. On that basis, I hope the noble Lord will withdraw his amendment.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

My Lords, I have received no requests to speak after the Minister, so I call the noble Lord, Lord Ramsbotham.

[Lord Ramsbotham (CB) [V]]

My Lords, I thank the Minister for his response and all those who have spoken so movingly in support of the amendments. The importance of communication for victims of domestic abuse and their children cannot be overemphasised. The Minister for Safeguarding having emphasised the importance that the Government attach to improving speech and language outcomes, I had hoped that the Government would consider including some of the contents of these amendments in the Bill. Until then, I beg leave to withdraw my amendment.

Amendment 22 withdrawn.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

My Lords, we now come to the group beginning with Amendment 23. I remind noble Lords that anyone wishing to speak after the Minister should email the clerk during the debate. Anyone wishing to press this or anything else in this group to a Division must make that clear in debate.

Amendment 23

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[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

My Lords, I have received two requests to speak after the Minister, from the noble Lords, Lord Ponsonby of Shulbrede and Lord Kennedy of Southwark.

[Lord Ponsonby of Shulbrede (Lab) [V]]

My Lords, in fact the Minister answered my question in almost her final sentence. It was about the status of callouts when considering this data. Police callouts are available to family courts and to sentencing criminal courts in domestic abuse cases. My question was going to be about the availability of that information to DAPOs, but I think that the Minister answered it in the affirmative.

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Amendment 23 withdrawn.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

We now come to the group beginning with Amendment 24. I remind noble Lords that anyone wishing to speak after the Minister should email the clerk during the debate. Anyone wishing to press this amendment or anything else in the group to a Division must make that clear in debate.

Amendment 24

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[Lord Rooker (Lab) [V]]

My Lords, in the interests of making progress, I have nothing further to add to what the noble Baroness has just said.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

The noble Baroness, Lady Bennett of Manor Castle, has withdrawn, so I call the noble Lord, Lord Hunt of Kings Heath.

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

My Lords, I cannot repeat my noble friend Lord Rooker’s admirable brevity, but I welcome this group of amendments. I particularly support Amendment 24, which seeks to add a list of things that the commissioner may do in pursuance of a general duty.

The noble Baroness is right that provisions around monitoring and assessing perpetrator behaviour are very important. Clause 7(2) already sets out:

“The things that the Commissioner may do in pursuance of the general duty under subsection (1) include … assessing, monitoring, and publishing information about, the provision of services to people affected by domestic abuse … making recommendations to any public authority about the exercise of its functions … undertaking or supporting … the carrying out of research … providing information, education or training … taking other steps to increase public awareness of domestic abuse … consulting public authorities”


and others; and co-operate, or work jointly with, public authorities. Reading the list, it does not seem to include monitoring and assessing perpetrator behaviour. As the noble Baronesses, Lady Hamwee and Lady Burt, have illustrated, this seems to be a gap, particularly as the Bill specifies in Clause 7(1):

“The Commissioner must encourage good practice in … the prevention, detection … and prosecution of offences involving domestic abuse.”


I would have thought that monitoring and assessing perpetrator behaviours would be an important part of that responsibility.

This is an important but neglected issue. A piece for Community Care by Ruth Hardy in 2017 that analysed serious case reviews found that domestic abuse was a feature of more than half the reviews carried out between 2011 and 2014, but that while much practice and research is focused on working with victims and survivors of domestic abuse, the same cannot be said of perpetrators. A report some years ago by inspectorates, including Ofsted, found that social services and partner agencies are not focusing enough on perpetrators. Last April, an article by Amanda L Robinson and Anna Clancy for the British Society of Criminology identified that a focus on developing and implementing effective interventions for victims had dominated the policy and practice agenda for nearly two decades. They commented that, in contrast, there has been relatively less success in establishing effective interventions for perpetrators. A systematic review of European evidence concluded:

“We do not yet know what works best, for whom, and under what circumstances.”


I have no doubt that the Minister will be able to say that legislation covers this, but it is important that we make the point that it would have been helpful to have been more explicit that perpetrator behaviour is a relevant part of the responsibilities of the commissioner.

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Amendments 25 and 26 not moved.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

We now come to the group beginning with Amendment 27. I remind noble Lords that anyone wishing to speak after the Minister should email the clerk during the debate. Anyone wishing to press this, or anything else in this group, to a Division, must make that clear in the debate.

Amendment 27

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[Baroness Meacher (CB) [V]]

My Lords, I will speak also to Amendments 41 and 103 in my name, all of which focus on early intervention and the prevention of domestic abuse. They seek to avoid the need for ultimate criminal justice interventions. I should like to put on record that the noble Baroness, Lady Watkins, has had to withdraw because she has to contribute in Grand Committee.

I fully support the Bill’s objectives as far as they go, but we must consider the consequences of domestic abuse for children and the need to intervene as soon as possible to prevent lifelong damage. As the Minister acknowledged in her summing up at Second Reading, we must prevent child victims of domestic abuse becoming the perpetrators of the next generation. One-third of them will become perpetrators unless we provide them with the help they need.

It is also important that the Bill promotes early intervention with couples who are experiencing conflict and potential domestic abuse. As it stands, the Bill will not achieve these vital objectives, but it would not be difficult to include a framework for effective prevention so that the Bill can achieve its full potential—and it really has a lot of potential.

Amendment 27 seeks to ensure that the commissioner focuses on her responsibility to encourage good practice in the prevention of domestic abuse—which of course is her first function. The amendment includes explicit reference to the need to ensure that psychological therapy services are available nationwide to couples experiencing conflict and potential domestic abuse.

Amendment 41 seeks to ensure that the commissioner’s advisory board includes at least one person who understands the importance of psychological therapy services to such high-risk couples and, most importantly, to their children. Amendment 103 seeks to ensure similar representation on local partnership boards.

The Law Society agrees with me that the Bill has

“excessive focus on criminal responses to domestic abuse.”

It goes on to say:

“It is crucial that victims of domestic abuse are able to access long-term support that aims to build resilience and confidence, rather than short-term protection by the courts and police.”


This is fundamentally important.

We know that large numbers of children across the UK are affected by domestic abuse. Estimates vary, but one suggests that the figure is just under one million. This is an awful lot of children. A group of children’s charities, including Hestia, has made the point that these children suffer severe mental health problems, often exhibited through aggressive and destructive behaviour. Pro Bono Economics estimates that the cost to the taxpayer of not providing this help is between £480 million and £1.4 billion.

I listened to the excellent debate on the parental alienation amendments. A number of noble Lords said that it is up to the courts to decide who is lying, and whether there is any foundation to an allegation of parental alienation. In my experience, by the time these cases reach the courts it can be almost impossible to determine where the lies began and where culpability lies—and by then the damage to the children will be extreme. Again, this is an argument in favour of early intervention with expert therapy—ideally family therapy. When the whole family sits together with a therapist, in a safe place, discussing things, the dynamics in a dysfunctional family become very clear and can be resolved. I was involved in this work many years ago. Family therapy can be extraordinarily powerful in resolving family problems.

I propose that therapy services for child victims of domestic abuse should continue to be provided by the NHS, rather than through local authorities. Following Jeremy Hunt’s excellent White Paper on child mental health, CCGs are currently funding mental health support teams in one-third of the country, providing NICE-recommended therapy to children and young people who need it, including victims of domestic abuse. These therapists work in schools, which is of course crucial. Children’s mental health problems are most likely to be identified in school. There should be a statutory obligation to provide these services across the country. I would be really interested to know whether the Minister agrees.

Section 55 places a duty on local authorities to provide support for victims of domestic abuse and their children who reside in “relevant accommodation”—which I take to mean a refuge. It is not clear that local authorities will have a statutory duty to ensure that psychological therapy is available, even to support adults or children in refuges. Of course, the situation is a good deal worse for the much greater number of domestic abuse victims, including children, who are not in refuges.

Amendment 176, in the name of the noble Lord, Lord Polak, shows a strong commitment to support services for the victims of domestic abuse, which I applaud. Again, however, it gives no assurance that victims, including children, will be guaranteed an offer of professional therapy help.

The aim of these amendments is to ensure that the domestic abuse system is set up to take care of the mental health needs of all victims. This is important not just for individuals but for society as a whole, both now and in the future. I beg to move.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

The noble Baroness, Lady Watkins of Tavistock, and the noble and learned Baroness, Lady Butler-Sloss, have withdrawn. I call the noble Baroness, Lady Stroud.

[Baroness Stroud (Con) [V]]

My Lords, I thank the noble Baroness, Lady Meacher, for moving this amendment and pay tribute to her vast experience in this area and her constant fight to ensure that early intervention is part of our psychological landscape.

Psychological therapy is an essential cornerstone of our domestic abuse response and Amendment 27 is potentially one of the most important we shall have a chance to debate today. It places a requirement on the commissioner to ensure nationwide access to psychological therapy services for couples experiencing conflict and potential domestic abuse. As we have already heard, the vast majority of victims—an estimated 70%—never set foot in a refuge and remain at home or in alternative housing. Many go beyond the care of psychological therapy. A SafeLives report highlights that 80% of survivors think that interventions for perpetrators are a good idea—and not just for those experiencing domestic abuse themselves.

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[The Earl of Lytton (CB) [V]]

My Lords, the noble Baronesses who have spoken to this group of amendments are hugely qualified to speak on the issues of psychotherapy, and none more so than the noble Baroness, Lady Meacher. I have no such credentials, beyond being an observer of the human condition coming from an entirely different field altogether.

My interest in supporting this group of amendments comes from a profound belief that—as the noble Baroness, Lady Meacher, said—rather than picking up the pieces after the event, early intervention before the damage in abusive relationships has reached its most pernicious stages must be an object of policy. Before we get to the stage of cranking into place all legal, prosecutorial, judicial and costly protective paraphernalia, the need to pay attention to psychological problems at a much earlier stage, or indeed as a preliminary step in later stages, seems an unavoidable conclusion. In support of that assertion, I need not go further than the domestic homicide reviews, cataloguing as they do the tragic endpoint of failure to intervene in time, but which consistently refer to much earlier and identifiable opportunities in the downward slope, at which points the problems could and should have been consciously noted and acted upon. Even if they do not end in homicide, I believe that similar trajectories occur in domestic abuse generally from childhood onwards.

To tackle this, we need an understanding of the psychology of victims, perpetrators and children in what is a hugely complex area of motivations, drivers, preconceptions and circumstances, right across gender and age divides, social and economic environments, matters of nature and nurture, and much else. This suggests to me that the discipline of psychology is a golden thread in terms of identifying traits informing decisions, facilitating early-stage support and intervention, and, as the noble Baronesses have said, breaking this terrible cycle of behaviour that the Bill seeks to address.

I recognise that psychological skills are, in any event, far from plentiful, and involve not only time but expense. But I do not believe that it is an argument to discard the appropriate tool on grounds of timing, complexity or cost; nor should we be deflected because, as has been explained to me by others, dealing with substance abuse in parallel with psychological issues—as is so often a combination—requires considerable skills and powers of leadership.

I am glad that the noble Baroness, Lady Meacher, mentioned cost-benefit. It may sound like monetising private misery, but I am absolutely convinced that she is right about the social cost and why these amendments are necessary.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

My Lords, the noble Lord, Lord McConnell of Glenscorrodale, has withdrawn, so I call the noble Baroness, Lady Burt of Solihull.

[Baroness Burt of Solihull (LD)]

My Lords, I strongly support these amendments, although, like the noble Earl, Lord Lytton, I lack the knowledge, skills and experience of the noble Baronesses, Lady Meacher and Lady Stroud. I therefore add our support for this suite of amendments, focusing as they do on the prevention of domestic abuse by making it a top priority for the commissioner, the advisory board and the local partnership boards. I also strongly support the emphasis on children and the need for therapy services all over the country, as elaborated on by the noble Baroness, Lady Stroud.

As we know, abuse is a cycle. The abused child all too frequently turns into the abuser, and generation begets generation of misery and pain. Unless there is an intervention to break this cycle, we will still be wrestling with this subject for years and, indeed, generations to come. There are other excellent amendments to come tackling this issue, so I will leave my comments there for now.

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Clause 7 agreed.

[The Deputy Chairman of Committees (Lord Faulkner of Worcester) (Lab)]

We now come to the group beginning with Amendment 30. I remind noble Lords that anyone wishing to speak after the Minister should email the clerk during the debate. Anyone wishing to press this or anything else in this group to a Division must make that clear in debate.

Clause 8: Reports

Amendment 30

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