Police, Crime, Sentencing and Courts Bill

Lord Hunt of Kings Heath Excerpts

Committee stage
Wednesday 24th November 2021 Lords Chamber

[Baroness Blake of Leeds (Lab)]

My Lords, this amendment would improve enforcement against illegal eviction. It would provide for stronger partnership between the police and local authorities to combat this serious crime, requiring co-operation and the sharing of relevant information by police forces. In almost all cases, an eviction is legal only if it is performed by court-appointed bailiffs. Anything else is an unlawful eviction, and renters have been protected from these since 1977 under the Protection from Eviction Act. A landlord may seek to deprive a renter of their home through harassment, changing the locks, cutting off electricity or other utilities, and other tactics that circumvent the legal system. This is a criminal offence, with penalties including up to two years in prison. Although those protections have been in place for years, in reality tenants are far too often left unprotected. In effect, there is a failure to enforce the law. In 2019-20, local authorities across England reported 1,040 cases of homelessness caused by illegal eviction, yet there were only 30 prosecutions of offences under the Protection from Eviction Act.

We have to ask what is behind that exceptionally low prosecution rate. The impact of cuts to local authority budgets has meant that many local authorities do not have tenancy relations officers who are trained in this area of law. More crucially to today’s debate, this issue of training also applies to police forces, with significant problems arising because forces lack officers and call handlers who are fully trained to respond to such incidents. Where the police do not recognise the criminality of these tactics on the part of landlords, it leads to underreporting of incidents and to those reported being routinely classed not as a criminal offence but as civil matters or breaches of the peace.

Although London Councils reported 130 incidents of homelessness caused by illegal eviction in 2019-20, the Metropolitan Police recorded only a 10th of that number of offences. In addition, in recent evidence to a Senedd committee, Shelter Cymru explained that it had encountered police assisting illegal evictions of tenants from their homes.

Amendment 292H is a small step which builds on the principle of partnership between local authorities and the police, strengthening their ability to prevent illegal evictions, prosecute offenders and ultimately deter landlords from using such tactics. It would require the police to provide local authorities with the information they need to investigate suspected offences and, as part of that, to increase police forces’ awareness of the offence. As part of a much-needed package, these changes must also inform police training programmes to ensure that illegal evictions are recognised and responded to.

The key questions for the Minister are: what are the Government doing to improve the dismal prosecution rate of this offence and what is being done to find and replicate good practice by police forces on this issue? For example, South Yorkshire Police routinely provides Sheffield council with incident logs to help support eviction cases.

The process of being evicted is most likely to be a traumatic experience when done legally. Being evicted illegally, often with nowhere to go and with one’s belongings dumped on the street, can be devastating. Renters should know that, when they reach out for help, police and local authorities will both recognise and be able to provide support against illegal activity. Failure to do so erodes trust and paves the way for increasingly serious problems, including homelessness.

I look forward to hearing from my noble friends Lord Hunt and Lady Armstrong on their important amendment in this group, which addresses protecting children both from violence in their own home and from exploitation outside it. Since the delay from the other evening, there are two additional amendments in the group, Amendments 320 and 328. I look forward to hearing the contributions on those. I beg to move.

[Lord Hunt of Kings Heath (Lab)]

My Lords, I want to speak to my Amendment 292J. This is a pretty heroic group of amendments in a bid to assist the Committee.

There is a connection between the amendment in the name of my noble friend Lady Blake and mine, because her amendment is about encouraging collaboration between the police and local authorities. I too want to see such collaboration. I want to add to that the NHS and other local bodies and, essentially, give a huge boost to support for services for vulnerable children. If we were able to do that, it would have a massive impact on the lives of those vulnerable young children but also ensure that far fewer of them went through our criminal justice system in later life, hence my justification for bringing this amendment to your Lordships today.

I am very much relying on the recently published report of the Public Services Select Committee. I am delighted that my noble friend Lady Armstrong, who excellently chairs the committee, is with me today, and I pay tribute to the members, some of whom will make a brief intervention in this debate, and the staff for their excellent work and the report.

The number of vulnerable children was increasing before Covid hit us, but, since March 2020, the crisis has accelerated. More than 1 million children are now growing up with reduced life chances, and too many end up in our criminal justice system. Despite this, the Government have not yet recognised the need for a child vulnerability strategy. Unfortunately, the results of not having one are readily evident. Our inquiry showed a lack of co-ordination on the part of central government and national regulators, which has undermined the ability of local services to work together to intervene early and share information to keep vulnerable children safe and improve their lives.

This poor national co-ordination means that many children fall through the gaps. In 2019, the Children’s Commissioner warned that more than 800,000 vulnerable children were completely invisible to services and receiving no support. We think this unmet need is likely to have grown during the pandemic. The Select Committee surveyed more than 200 professionals working with children and families and they reported increases of well over 50% during the past 18 months in the number of children and families requesting help with parental mental ill-health or reporting domestic violence and addiction problems in their home.

The problem is that public services are just too late to intervene before trouble comes. In our most deprived communities, too many children go into care and have poor health and employment outcomes. They are excluded from school or end up in prison.

--- Later in debate ---

[Baroness Brinton (LD) [V]]

My Lords, the noble Lord, Lord Russell of Liverpool, has very ably set out the reasons why this amendment has been tabled, so I will be brief. Let me put it politely: the House will know that a number of us remain concerned that stalking is still not taken seriously by the Home Office, the Government and some parts of the criminal justice system. We know that training remains patchy, and that victims are still told they should be grateful for the attention of their stalker. That is why we tabled this amendment to create a stalking strategy—not for the first time; I have been tabling amendments on a stalking strategy for a decade—for training in recognising, and working in a truly multidisciplinary way to recognise, possible stalking perpetrators, and to let MAPPA professionals become involved at an early stage as soon as the possibility of fixated and obsessive behaviour emerges.

The noble Baroness, Lady Williams, told your Lordships’ House during the passage of the Domestic Abuse Bill, on consideration of Commons’ amendments, that the Government were consulting with different key parties in the criminal justice system to amend the guidance on MAPPA and to recognise and manage stalking. I thank her for sharing the proposed revisions to the statutory guidance. She said:

“Once the revised guidance is settled, we will promulgate it through a Written Ministerial Statement, and this will provide an opportunity to update the House on the delivery of the other commitments I have set out. Noble Lords talked about having some sort of debate in this place, perhaps after the Summer Recess.”—[Official Report, 27/4/21; cols. 2180-81.]


When will this be brought back to your Lordships’ House for such a debate?

The noble Baroness also said:

“We are also legislating already in the Police, Crime, Sentencing and Courts Bill to put beyond doubt the powers of duty to co-operate agencies to share information under MAPPA by clarifying existing information-sharing provisions. We are investing new resources to tackle perpetrators, with an additional £25 million committed this year.”—[Official Report, 27/4/21; col. 2182.]


I understand that that is not just stalking perpetrators but perpetrators of a range of serious crimes.

Despite her encouraging us to bring back stalking-specific matters to this Bill because they were not appropriate for the Domestic Abuse Bill, it is noticeable that there is still no sign of a stalking strategy. It is as if stalking protection orders, now passed, are the magic answer, when actually they are part of the toolkit for managing fixated and obsessive perpetrators who may not come under domestic abuse legislation. As the noble Lord, Lord Russell, demonstrated, the patchy application of SPOs is real evidence of the old problem continuing. The choice about how to apply the stalking laws remains with people inside the police and courts system.

In a case in Wales in the last two weeks, a man was charged with two incidents relating to stalking his ex-partner, but she had already moved home twice and it is evident from the case that this stalking had been going on for a considerable time. Can the Minister say what training is happening within all police forces and all the courts—family as well as criminal—and for social workers, among others involved in MAPPA?

It is 13 years since my stalker was convicted—after 100 incidents had happened—and close to 10 years since stalking was created as a separate offence from harassment, but people being stalked still have to face many issues in the system because there is no overarching strategy for dealing with stalking. It is time that there was.

[Lord Hunt of Kings Heath (Lab)]

My Lords, the noble Baroness, Lady Brinton, has eloquently and bravely described on a number of occasions and brought home to us just how important it is to tackle stalking in an effective way. I also pay tribute to the noble Baroness, Lady Newlove, who has been an inspiration during our discussions on these issues.

I will make just two points to emphasise the excellent speech by the noble Lord, Lord Russell. First, he mentioned the huge number of women who are victims of stalking and the disgracefully low number of prosecutions. The problem is not just the inconsistencies to which he and HM Inspectorate have referred. It is also clear that in too many police forces stalking is seen as a low-level nuisance behaviour issue rather than the serious crime it often is.

We know that a number of stalking perpetrators who potentially pose the highest risk to victims would not meet the threshold for the assessment and management of risk for a relevant domestic abuse or stalking perpetrator, as proposed under the MAPPA model. This is a big problem. As the Suzy Lamplugh Trust, which does so much fantastic work in this area, has identified, stalking is often not recognised as a crime. The level of risk to a victim is therefore inadequately identified and addressed, and this has the potential to put many lives in serious danger.

I refer the Minister to Dr Jane Monckton Smith’s 2017 study of 358 homicides, all of which involved a female victim and a male perpetrator. It revealed stalking behaviour as an antecedent to femicide in 94% of those cases. That demonstrates why it is so important to work on prevention and action in relation to stalking.

The noble Baroness responded at great length to our previous debate in Committee, setting out the proposals and the actions her department is taking. As the noble Lord, Lord Russell, said, in the end they do not really amount to a cohesive strategy that will actually start to take this seriously. I hope the Minister will perhaps agree to reflect on this between now and Report to see whether we can take this any further.