Nigel Evans
Main Page: Nigel Evans (Conservative - Ribble Valley)Department Debates - View all Nigel Evans's debates with the Home Office
Monday 6th July 2020
(4 years, 5 months ago)
Commons ChamberRead Full debate Domestic Abuse Bill 2019-21 View all Domestic Abuse Bill 2019-21 Debates Read Hansard Text Read Debate Ministerial Extracts Amendment Paper: Consideration of Bill Amendments as at 6 July 2020 - (6 Jul 2020)
The Parliamentary Under-Secretary of State for the Home Department (Victoria Atkins)
I beg to move, That the clause be read a Second time.
Mr Deputy Speaker (Mr Nigel Evans)
With this it will be convenient to discuss the following:
Government new clause 16—Special measures in family proceedings: victims of domestic abuse.
Government new clause 17—Special measures in civil proceedings: victims of specified offences.
Government new clause 18—Prohibition of cross-examination in person in civil proceedings.
Government new clause 20—Consent to serious harm for sexual gratification not a defence.
New clause 1—Pornography and domestic violence: research—
‘(1) The Secretary of State must commission research into the impact of pornography consumption on levels of domestic violence.
(2) The Secretary of State must lay the research before Parliament within 12 months of this Act being passed.”
New clause 2—Research into the incidence of domestic abuse within different living arrangements—
The Secretary of State must commission research on the incidence of domestic abuse in the context of different forms of relationship including marriage, civil partnerships and cohabitation, with special respect to both adult and child wellbeing and reporting to the House with this research and policy recommendations within 12 months of this Act becoming law.”
New clause 3—Report on domestic abuse incidence and sentencing—
The Secretary of State must provide a report to the House reviewing trends in the incidences of domestic abuse and sentencing for domestic abuse offences over the last ten years in England and Wales with a view to making policy recommendations including with respect to increasing both minimum and maximum sentences for domestic abuse offences and present to Parliament within the 12 months of this Act becoming law.
New clause 4—No defence for consent to death—
‘(1) If a person (“A”) wounds, assaults or asphyxiates another person (“B”) to whom they are personally connected as defined in section 2 of this Act causing death, it is not a defence to a prosecution that B consented to the infliction of injury.
(2) Subsection (1) applies whether or not the death occurred in the course of a sadomasochistic encounter.”
This new clause would prevent consent of the victim from being used as a defence to a prosecution in domestic homicides.
New clause 5—No defence for consent to injury—
‘(1) If a person (“A”) wounds, assaults or asphyxiates another person (“B”) to whom they are personally connected as defined in section 2 of this Act causing actual bodily harm or more serious injury, it is not a defence to a prosecution that B consented to the infliction of injury or asphyxiation.
(2) Subsection (1) applies whether or not the actual bodily harm, non-fatal strangulation, or more serious injury occurred in the course of a sadomasochistic encounter.”
This new clause would prevent consent of the victim from being used as a defence to a prosecution in cases of domestic abuse which result in serious injury.
New clause 6—Consent of Director of Public Prosecutions—
In any homicide case in which all or any of the injuries involved in the death, whether or not they are the proximate cause of it, were inflicted in the course of domestic abuse, the Crown Prosecution Service may not without the consent of the Director of Public Prosecutions, in respect of the death—
(a) charge a person with manslaughter or any other offence less than the charge of murder, or
(b) accept a plea of guilty to manslaughter or any other lesser offence.”
This new clause would require the consent of the Director of Public Prosecutions if, in any homicide case in which any of the injuries were inflicted in the course of domestic abuse, the charge (or the plea to be accepted) is of anything less than murder.
New clause 7—Director of Public Prosecutions consultation with victim’s family in domestic homicides—
‘(1) Before deciding whether or not to give consent to charging a person with manslaughter or any other offence less than the charge of murder in an offence of homicide in which domestic abuse was involved, the Director of Public Prosecutions must consult the immediate family of the deceased.
(2) The Lord Chancellor must make arrangements, including the provision of a grant, to enable the immediate family to access legal advice prior to being consulted by the Director of Public Prosecutions under subsection (1).”
This new clause would require the Director of Public Prosecutions to consult the immediate family of the victim before charging less than murder in a domestic homicide and provide the family with legal advice so they can understand the legal background.
New clause 8—Offence of non-fatal strangulation—
A person (A) commits an offence if that person unlawfully strangles, suffocates or asphyxiates another person (B), where the strangulation, suffocation or asphyxiation does not result in B’s death.”
This new clause will create a new offence of non-fatal strangulation.
New clause 9—Offence of non-fatal strangulation in domestic abuse context—
A person (A) commits an offence if that person unlawfully strangles, suffocates or asphyxiates another person (B) to whom they are personally connected as defined in section 2 of this Act, where the strangulation, suffocation or asphyxiation does not result in B’s death.”
This new clause will create a new offence of non-fatal strangulation in domestic abuse offences.
New clause 10—Prohibition of reference to sexual history of the deceased in domestic homicide trials—
If at a trial a person is charged with an offence of homicide in which domestic abuse was involved, then—
(a) no evidence may be adduced, and
(b) no question may be asked in cross-examination, by or on behalf of any accused at the trial,
about any sexual behaviour of the deceased.”
This new clause will prevent the victim’s previous sexual history being used as evidence to prove consent to violence in a domestic homicide case. This draws on the legislative measures in the Youth Justice and Criminal Evidence Act 1999 to prevent rape defendants raking up or inventing complainants’ previous sexual history.
New clause 11—Anonymity for victims in domestic homicides—
‘(1) Where a person (“A”) has been accused of a domestic homicide offence and where the person (“B”) against whom the offence is alleged to have been committed has died in the course of sexual activity, no matter likely to lead members of the public to identify a person as B shall be included in any publication.
(2) The matters relating to a person in relation to which the restrictions imposed by subsection (1) applies (if their inclusion in any publication is likely to have the result mentioned in that subsection) include in particular—
(a) the person’s name,
(b) the person’s address,
(c) the identity of any school or other educational establishment attended by the person,
(d) the identity of any place of work,
(e) any still or moving picture of the person.
(3) If, at the commencement of the trial, any of the matters in subsection (2) have already appeared in any publication, the judge at the trial may direct that no further reference to any of these matters may be included in any publication.
(4) If any matter is included in a publication in contravention of this section, the following persons shall be guilty of an offence and liable on summary conviction to a fine not exceeding level 5 on the standard scale—
(a) where the publication is a newspaper or periodical, any proprietor, any editor and any publisher of the newspaper or periodical;
(b) where the publication is a relevant programme—
(i) any body corporate engaged in providing the programme service in which the programme is included; and
(ii) any person having functions in relation to the programme corresponding to those of an editor of a newspaper;
(c) in the case of any other publication, any person publishing it.
(5) For the purposes of this section—
“domestic homicide offence” means an offence of murder or manslaughter which has involved domestic abuse;
a “publication” includes any speech, writing, relevant programme, social media posting or other communication in whatever form, which is addressed to the public at large or any section of the public (and for this purpose every relevant programme shall be taken to be so addressed), but does not include an indictment or other document prepared for use in particular legal proceedings.”
This new clause will provide the victim of a domestic homicide with public anonymity.
New clause 12—Domestic abuse: report on incidence and sentencing—
‘(1) The Secretary of State must, within 12 months of Royal Assent being given to this Act, lay before both Houses of Parliament a report on—
(a) the incidence of domestic abuse in England and Wales since 1 January 2010, and
(b) sentencing for any offence where judgment was handed down after 1 January 2010 and it was alleged that the behaviour of the accused amounted to domestic abuse.
(2) A purpose of a report under subsection (1) shall be to inform a decision on whether or not to increase the minimum or maximum sentence for any offence where it is found the behaviour of the accused amounted to domestic abuse.
(3) “Domestic abuse” shall, for the purposes of this section, have the meaning given in section 1 of this Act.”
New clause 13—Screening for acquired brain injury in domestic abuse cases—
‘(1) A woman who has been the subject of domestic abuse shall, with her consent, be screened for traumatic brain injury, and other forms of acquired brain injury, including concussion.
(2) For the purposes of this section, a woman has been the subject of domestic abuse if—
(a) she is the person for whose protection a domestic abuse protection notice or a domestic abuse protection order has been issued, or
(b) she is the person against whom it is alleged that domestic abuse has been perpetrated when the accused is charged with an offence that amounts to domestic abuse within the meaning of section 1 of this Act.
(3) In the case of subsection (2)(a), the screening shall take place within two weeks of a domestic abuse protection notice or a domestic abuse protection order being issued.
(4) In the case of subsection (2)(b), the screening shall take place within two weeks of a charge being made for an offence where it is alleged that the behaviour of the accused amounts to domestic abuse within the meaning of section 1 of this Act.”
New clause 14—Acquired brain injury screening for female prisoners—
‘(1) All female prisoners must be screened for traumatic brain injury, and other forms of acquired brain injury, including concussion, within two weeks of starting their sentence.
(2) A purpose of the screening will be to assist in a determination as to whether a prisoner has been the subject of domestic abuse.
(3) If the screening shows that there is an acquired brain injury—
(a) an assessment must be made of whether such an injury has been acquired as a result of domestic abuse, and
(b) the prisoner must be given appropriate rehabilitation treatment and advice.”
New clause 19—Anonymity of domestic abuse survivors in criminal proceedings—
‘(1) Where an allegation has been made that a relevant offence has been committed against a person, no matter relating to that person shall during that person’s lifetime be included in any publication if it is likely to lead members of the public to identify that person as the survivor.
(2) Where a person is accused of a relevant offence, no matter likely to lead members of the public to identify the person against whom the offence is alleged to have been committed as the survivor shall during the survivor’s lifetime be included in any publication.
(3) This section does not apply in relation to a person by virtue of subsection (1) at any time after a person has been accused of the offence.
(4) The matters relating to a survivor in relation to which the restrictions imposed by subsection (1) or (2) apply (if their inclusion in any publication is likely to have the result mentioned in that subsection) include—
(a) the survivor’s name;
(b) the survivor’s address;
(c) the identity of any school or other educational establishment the survivor attended;
(d) the identity of any place where the survivor worked;
(e) any still or moving pictures of the survivor; and
(f) any other matter that might lead to the identification of the survivor.
(5) At the commencement of a trial at which a person is charged with a relevant offence, the judge may issue a direction for lifting the restrictions only following an application by or on behalf of the survivor.
(6) Any matter that is included in a publication in contravention of this section must be deleted from that publication and no further reference to the matter may be made in any publication.
(7) If any matter is included in a publication in contravention of this section, the following persons shall be guilty of an offence and liable on summary conviction to a fine not exceeding level 5 on the standard scale—
(a) where the publication is a newspaper or periodical, any proprietor, any editor and any publisher of the newspaper or periodical;
(b) where the publication is a relevant programme—
(i) any body corporate or Scottish partnership engaged in providing the programme service in which the programme is included; and
(ii) any person having functions in relation to the programme corresponding to those of an editor of a newspaper;
(c) in the case of any other publication, any person publishing it.
(8) For the purposes of the section—
“publication” means any material published online or in physical form as any well as any speech, writing, website, online news outlet, social media posting, relevant programme or other communication in whatever form which is addressed to the public at large or any section of the public;
a “relevant offence” means any offence where it is alleged by the survivor that the behaviour of the accused amounted to domestic abuse;
“survivor” means the person against whom the offence is alleged to have been committed.”
This new clause provides lifetime press anonymity for survivors of domestic abuse, and reflects similar protections for survivors of sexual assault enshrined in the Sexual Offences (Amendment) Act 1992. It prevents identifiable details from be published online or in print, and creates a new offence for breaching this anonymity.
New clause 21—Register for domestic abuse—
‘(1) The Secretary of State must arrange for the creation of a register containing the name, home address and national insurance number of any person (P) convicted of an offence that constitutes domestic abuse as defined in section 1 of this Act.
(2) Each police force in England and Wales shall be responsible for ensuring that the register is kept up to date with all relevant offences committed in the police force’s area.
(3) Each police force in England and Wales shall be responsible for ensuring that P notifies relevant police forces within 14 days if they commence a new sexual or romantic relationship.
(4) A failure to notify the police in the circumstances set out in subsection (4) shall be an offence liable on conviction to a term of imprisonment not exceeding 12 months.
(5) The relevant police force shall have the right to inform any person involved in a relationship with P of P’s convictions for domestic abuse as defined in section 1 of this Act.”
This new clause would require that any person convicted of any offence of domestic abuse as defined in section 1 must have their details recorded on a domestic abuse register to ensure that all the perpetrator’s subsequent partners have full access to information regarding their domestic abuse offences.
New clause 22—Recourse to public funds for domestic abuse survivors—
‘(1) The Immigration Acts are amended as follows.
(2) In section 115 of the Immigration and Asylum Act 1999 after subsection (10) insert—
“(11) This section does not apply to a person who is a victim of domestic abuse in the United Kingdom who provides evidence in one or more of the forms set out in section [Recourse to public funds for domestic abuse survivors] of the Domestic Abuse Act 2020.”
(3) In paragraph 2(1) of Schedule 3 to the Nationality, Immigration and Asylum Act 2002 after sub-paragraph (b) insert—
“(ba) to a person who is a victim of domestic abuse in the United Kingdom who provides evidence in one or more of the forms set out in section [Recourse to public funds for domestic abuse survivors] of the Domestic Abuse Act 2020, or”.
(4) In section 21 of the Immigration Act 2014 at the end of subsection (3) insert “or if P is a victim of domestic abuse”.
(5) In section 3 of the Immigration Act 1971 after subsection (1) insert—
“(1A) The Secretary of State may not make or maintain a condition under subsection (1)(c)(ii) on leave granted to a victim of domestic abuse in the United Kingdom who provides evidence in one or more of the forms set out in section [Recourse to public funds for domestic abuse survivors] of the Domestic Abuse Act 2020; and it is not a breach of the immigration laws or rules for such a victim to have recourse to public funds.”
(6) For the purposes of this section, evidence that a person is a victim of domestic abuse may consist of one or more of the following—
(a) a relevant conviction, police caution or protection notice;
(b) a relevant court order (including without notice, ex parte, interim or final orders), including a non-molestation undertaking or order, occupation order, domestic abuse protection order, forced marriage protection order or other protective injunction;
(c) evidence of relevant criminal proceedings for an offence concerning domestic violence or a police report confirming attendance at an incident resulting from domestic abuse;
(d) evidence that a victim has been referred to a multi-agency risk assessment conference;
(e) a finding of fact in the family courts of domestic abuse;
(f) a medical report from a doctor at a UK hospital confirming injuries or a condition consistent with being a victim of domestic abuse;
(g) a letter from a General Medical Council registered general practitioner confirming that he or she is satisfied on the basis of an examination that a person had injuries or a condition consistent with those of a victim of domestic abuse;
(h) an undertaking given to a court by the alleged perpetrator of domestic abuse that he or she will not approach the applicant who is the victim of the abuse;
(i) a letter from a social services department confirming its involvement in providing services to a person in respect of allegations of domestic abuse;
(j) a letter of support or a report from a domestic abuse support organisation; or
(k) other evidence of domestic abuse, including from a counsellor, midwife, school, witness or the victim.
(7) For the purposes of this section—
“domestic abuse” has the same meaning as in section 1 of the Domestic Abuse Act 2020;
“victim” includes the dependent child of a person who is a victim of domestic abuse.
(8) Within 12 months of this Act being passed, the Secretary of State must commission a review into the operation of the provisions in this section.
(9) The Secretary of State must lay before Parliament a report setting out the findings of the review.”
This new clause seeks to ensure that certain provisions under the Immigration Acts – including exclusion from public funds, certain types of support and assistance and the right to rent – do not apply to survivors of domestic abuse. There will be a review into the operation of this provision.
New clause 23—Commissioning specialist domestic abuse services for victims and perpetrators of domestic abuse—
‘(1) It is the duty of relevant public authorities in England and non-devolved relevant public authorities in Wales in the exercise of their functions to commission sufficient specialist services for all persons affected by domestic abuse regardless of status.
(2) To ensure compliance with the duty under subsection (1) public authorities must—
(a) regularly assess population and support needs changes in their area;
(b) take account of any strategy to end violence against women and girls adopted by a Minister of the Crown; and
(c) co-operate to discharge the duty.
(3) The Secretary of State may issue regulations making provision for the resolution of disputes between public authorities relating to the discharge of the duty under subsection (1).
(4) In relation to the provision of domestic abuse support as defined by section 54(2), each relevant local authority may discharge the duty under subsection (2)(a) through compliance with its obligations under section 54(1)(a).
(5) In performing the duty under subsection (1) a relevant public authority must secure sufficient specialist services for (among others) the following persons—
(a) any victim of domestic abuse aged over 18;
(b) any child aged under 18 who experiences or witnesses domestic abuse;
(c) any person aged over 18 who exhibits abusive behaviour towards another person to whom they are personally connected;
(d) any child aged under 18 who exhibits abusive behaviour towards another person to whom they are personally connected.
(6) In performing the duty under subsection (1), a relevant public authority must where necessary secure specialist services designed to meet the particular needs of a group that shares a status to ensure appropriate and effective service provision.
(7) In this section—
“abusive behaviour” is behaviour that is abusive within the definition in section 1(3).
“domestic abuse” has the meaning given by Part 1 of this Act.
“personally connected” has the meaning given in section 2 of this Act.
“relevant public authorities” are public authorities with statutory functions relevant to the provision of specialist services, including but not limited to—
(a) Ministers of the Crown and Government departments;
(b) local government in England;
(c) NHS Trusts in England;
(d) Police and Crime Commissioners;
(e) prison, police and probation services.
“status” means a status for the purpose of Article 4(3) of the Council of Europe Convention on preventing and combating violence against women and domestic violence, and combined forms of any such status.
“specialist services” include but are not limited to the following when provided in connection with domestic abuse, whether provided by a public authority or any other person or body—
(a) protective measures and action taken to protect persons against domestic abuse;
(b) residential accommodation, including refuge services and other relevant accommodation and support as defined in section 54(2);
(c) counselling and other support;
(d) advocacy services;
(e) access to welfare benefits;
(f) perpetrator programmes;
(g) financial support;
(h) legal services;
(i) helplines;
(j) services designed to meet the particular needs of a group that shares a status to ensure appropriate and effective service provision, including separate or single-sex services within the meaning given in Part 7 of Schedule 3 the Equality Act, and “communal accommodation” within the meaning given in paragraph 3 of Schedule 23 to the Equality Act 2010.
“victims of domestic abuse” includes—
(a) persons towards whom domestic abuse is directed and
(b) persons who are reasonably believed to be at risk of domestic abuse.”
This new clause would establish a statutory duty on relevant public authorities to commission specialist support and services to all persons affected by domestic abuse. This includes refuge and community-based services; specialist services for groups with protected characteristics; services for children and young people; services for perpetrators.
New clause 24—Proceedings under the Children Act 1989—
‘(1) Part I of the Children Act 1989 is amended as follows.
(2) In section 1 (the welfare of the child) after subsection (2B) insert—
“(2C) Subsection (2A) shall not apply in relation to a parent where there has been domestic abuse which has affected the child or other parent.
(2D) Evidence of domestic abuse may be provided in one or more of the forms set out in regulation 33(2) of the Civil Legal Aid (Procedure) Regulations 2012.”
(3) Part II of the Children Act 1989 is amended as follows.
(4) In section 9 (restrictions on making section 8 orders) after subsection (7) insert—
“(8) No court shall make a section 8 order for a child to spend unsupervised time with or have unsupervised contact with a parent who is—
(a) awaiting trial, or on bail for, a domestic abuse offence, or
(b) involved in ongoing criminal proceedings for a domestic abuse offence.
(8A) In subsection (8)—
“unsupervised” means where a court approved third party is not present at all times during contact with the parent to ensure the physical safety and emotional wellbeing of a child;
“domestic abuse offence” means an offence which the Crown Prosecution Service alleges to have involved domestic abuse.””
This new clause seeks to change the presumption that parental involvement furthers the child’s welfare when there has been domestic abuse. It also prohibits unsupervised contact for a parent awaiting trial or on bail for domestic abuse offences, or where there are ongoing criminal proceedings for domestic abuse.
New clause 25—Effective protection and support for all victims of domestic abuse—
‘(1) The Secretary of State must take steps to ensure that all victims of domestic abuse, irrespective of their status, receive—
(a) equally effective protection against domestic abuse, and
(b) equally effective support.
(2) In this section—
“status” includes a status for the purpose of Article 4(3) of the Council of Europe Convention on preventing and combating violence against women and domestic violence and any combined forms of such status.
“victims of domestic abuse” includes persons who are reasonably believed to be at risk of domestic abuse.”
This new clause ensures all victims of domestic abuse are protected, regardless of their status, in line with Article 4(3) of the Council of Europe Convention on preventing and combating violence against women and domestic violence (Istanbul Convention).
New clause 26—Victims of domestic abuse: leave to remain—
‘(1) The Secretary of State must, within 3 months of this Act being passed, lay a statement of changes in rules made under section 3(2) of the Immigration Act 1971 (“the immigration rules”) to make provision for leave to remain to be granted to any person subject to immigration control who is a victim of domestic abuse in the United Kingdom.
(2) The statement laid under subsection (1) must set out rules for the granting of indefinite leave to remain to any person subject to immigration control who is a victim of domestic abuse in the United Kingdom; and the statement must provide for those rules to be commenced no later than one month of the laying of the statement.
(3) The Secretary of State must make provision for granting limited leave to remain for a period of no less than 6 months to any person eligible to make an application under the immigration rules for the purposes of subsection (2); and such leave shall include no condition under section 3(1)(c)(i), (ia), (ii) or (v) of the Immigration Act 1971.
(4) The Secretary of State must make provision for extending limited leave to remain granted in accordance with subsection (3) to ensure that leave continues throughout the period during which an application made under the immigration rules for the purposes of subsection (2) remains pending.
(5) Where subsection (6) applies, notwithstanding any statutory or other provision, no services shall be withheld from a victim of domestic abuse solely by reason of that person not having leave to remain or having leave to remain subject to a condition under section 3(1)(c) of the Immigration Act 1971.
(6) This subsection applies where a provider of services is satisfied that the victim of domestic abuse is eligible to make an application to which subsection (3) refers.
(7) The Secretary of State must, for the purposes of subsection (5), issue guidance to providers of services about the assessment of eligibility to make an application to which subsection (3) refers.
(8) In this section—
an application is “pending” during the period—
(a) beginning when it is made,
(b) ending when it is finally decided, withdrawn or abandoned, and an application is not finally decided while an application for review or appeal could be made within the period permitted for either or while any such review or appeal remains pending (meaning that review or appeal has not been finally decided, withdrawn or abandoned);
“person subject to immigration control” means a person in the United Kingdom who does not have the right of abode;
“provider of services” includes both public and private bodies;
“services” includes accommodation, education, employment, financial assistance, healthcare and any service provided exclusively or particularly to survivors of domestic abuse.”
This new clause would make provision in the immigration rules for the granting of indefinite leave to remain to migrant survivors of domestic abuse and limited leave to remain to a survivor who is eligible to make an application for indefinite leave to remain.
New clause 27—Victims of domestic abuse: data-sharing for immigration purposes—
‘(1) The Secretary of State must make arrangements to ensure that personal data of a victim of a domestic abuse in the United Kingdom that is processed for the purpose of that person requesting or receiving support or assistance related to domestic abuse is not used for any immigration control purpose without the consent of that person.
(2) The Secretary of State must make arrangements to ensure that the personal data of a witness to domestic abuse in the United Kingdom that is processed for the purpose of that person giving information or evidence to assist the investigation or prosecution of that abuse, or to assist the victim of that abuse in any legal proceedings, is not used for any immigration control purpose without the consent of that person.
(3) Paragraph 4 of Schedule 2 to the Data Protection Act 2018 shall not apply to the personal data to which subsection (1) or (2) applies.
(4) For the purposes of this section, the Secretary of State must issue guidance to—
(a) persons from whom support or assistance may be requested or received by a victim of domestic abuse in the United Kingdom;
(b) persons exercising any function of the Secretary of State in relation to immigration, asylum or nationality; and
(c) persons exercising any function conferred by or by virtue of the Immigration Acts on an immigration officer.
(5) For the purposes of this section—
“consent” means a freely given, specific, informed and unambiguous indication of the victim or witness, by an express statement of that person signifying agreement to the processing of the personal data for the relevant purpose;
“immigration control purpose” means any purpose of the functions to which subsection (4)(ii) and (iii) refers;
“support or assistance” includes the provision of accommodation, banking services, education, employment, financial or social assistance, healthcare and policing services; and any function of a court or prosecuting authority;
“victim” includes any dependent of a person, at whom the domestic abuse is directed, where that dependent is affected by that abuse.”
This new clause would require the Secretary of State to make arrangements to ensure that the personal data of migrant survivors of domestic abuse that is given or used for the purpose of their seeking or receiving support and assistance is not used for immigration control purposes.
New clause 28—Enabling access to abortion in abusive relationships—
‘(1) The Abortion Act 1967 is amended as follows.
(2) At the end of section 1 add—
“(5) Subsection (3) of this section shall not apply to the termination of a pregnancy by a registered medical practitioner who is of the opinion, formed in good faith, that the woman is unable to access treatment for the termination of pregnancy in a hospital or a place approved by the Secretary of State under subsection (3) by reason of the abusive behaviour of a person with whom the woman is personally connected within the meaning of section 2 of the Domestic Abuse Act 2020.””
In cases of domestic abuse where a woman seeking an abortion is subject to coercive control, this new clause would remove the legal requirement for attendance at a hospital or licensed premises in order to access lawful abortion services.
Amendment (a), line 4 after “apply to the” insert “medical”
Amendment (b), line 6 after “faith,” insert
“that the pregnancy has not exceeded nine weeks and six days and”
Amendment (c), line 10 at end insert—
‘(3) This section may not take effect until the Government has conducted an inquiry into the safety, number, and impact of abortions carried out under the temporary coronavirus crisis provisions where the place of abortion was the woman’s home, and has laid a Report on this before Parliament.”
New clause 30—Local Welfare Provision schemes—
‘(1) Every local authority in England must deliver a Local Welfare Provision scheme which provides financial assistance to victims of domestic abuse.
(2) The Secretary of State must issue guidance on the nature and scope of Local Welfare Provision schemes and review this biannually in consultation with the Domestic Abuse Commissioner and other such individuals and agencies the Secretary of State deems appropriate.
(3) The Chancellor of the Exchequer must provide local authorities with additional funding designated for Local Welfare Provision, to increase per year with inflation.
(4) For the purposes of this subsection “domestic abuse” is defined in section 1 of the Domestic Abuse Act 2020.”
This new clause would allow victims of domestic abuse to access a local welfare assistance scheme in any locality across England.
New clause 31—Guidance: Child maintenance—
‘(1) The Secretary of State must issue guidance relating to the payment of child maintenance where the person with care of the child is a victim of domestic abuse.
(2) Guidance issued under this section must take account of—
(a) the potential for the withholding or reducing of child maintenance to constitute economic abuse under section 1(4) of this Act;
(b) the need for enforcement action to prevent non-payment; and
(c) the difficulties faced by victims of domestic abuse in obtaining evidence to support an application for a variation of a child maintenance calculation.
(3) The Child Maintenance Service must have regard to any guidance issued under this section when exercising a function to which the guidance relates.
(4) Before issuing guidance under this section, the Secretary of State must consult—
(a) the Domestic Abuse Commissioner, and
(b) such other persons as the Secretary of State considers appropriate.
(5) The Secretary of State must publish any guidance issued under this section.”
This new clause would require the Secretary of State to issue guidance to the Child Maintenance Service to tackle the problem of abusers continuing economic abuse by withholding or reducing child maintenance payments.
New clause 32—Assessment and management of serial and serious domestic abuse and stalking perpetrators—
Within six months of the commencement of this Act, a Minister of the Crown must lay a report before both Houses of Parliament reviewing arrangements for assessing and managing the risk presented by serial and serious harm domestic abuse and stalking perpetrators.”
New clause 33—Monitoring of serial and serious harm domestic abuse and stalking perpetrators under MAPPA—
‘(1) The Criminal Justice Act 2003 is amended as follows.
(2) In section 325 (Arrangements for assessing etc risk posed by certain offenders) —
(a) in subsection (1), after ““relevant sexual or violent offender” has the meaning given by section 327” insert—
““relevant domestic abuse or stalking perpetrator” has the meaning given in section 327ZA;”;
(b) in subsection (2)(a), after “offenders” insert “(aa) relevant domestic abuse or stalking perpetrators,”.
(3) After section 327 (Section 325: interpretation) insert—
“327ZA Section 325: interpretation of relevant domestic abuse or stalking perpetrator
(1) For the purposes of section 325—
a person (“P”) is a “relevant domestic abuse or stalking perpetrator” if P has been convicted of a specified offence and meets either the condition in subsection (2)(a) or the condition in subsection (2)(b).
(2) For the purposes of subsection (1), the conditions are—
(a) P is a relevant serial offender;
(b) a risk of serious harm assessment has identified P as presenting a high or very high risk of serious harm.
(3) An offence is a “specified offence” for the purposes of this section if it is a specified domestic abuse offence or a specified stalking offence.
(4) In this section—
“relevant serial offender” means a person convicted on more than one occasion for the same specified offence; or a person convicted of more than one specified offence;
“specified domestic abuse offence” means an offence where it is alleged that the behaviour of the accused amounted to domestic abuse within the meaning defined in Section 1 of this Act;
“specified stalking offence” means an offence contrary to section 2A or section 4A of the Protection from Harassment Act 1997.
(5) Within six months of the commencement of this section, a Minister of the Crown must lay a report before both Houses of Parliament reviewing the interpretation of the term “relevant domestic abuse or stalking perpetrator” for the purposes of section 325.
(6) A report under subsection (5) must give specific consideration to arrangements for assessing and managing the risks of domestic abuse or stalking posed by perpetrators convicted of offences other than a specified offence.
(7) Subject to a report under subsection (5) being laid before both Houses of Parliament, a Minister of the Crown may by regulations amend this section.”
This new clause amends the Criminal Justice Act 2003, which provides for the establishment of Multi-Agency Public Protection Arrangements (“MAPPA”), to make arrangements for serial domestic abuse or stalking perpetrators to be registered on VISOR and be subjected to supervision, monitoring and management through MAPPA.
New clause 34—Threat to disclose private photographs and films with intent to cause distress—
In the Criminal Justice and Courts Act 2015, after section 13 insert—
“33A Threat to disclose private photographs and films with intent to cause distress
(1) It is an offence for a person to threaten to disclose a private sexual photograph or film of a person to whom they are personally connected without the consent of an individual who appears in the photograph or film if the threat is made to either—
(a) the individual who appears in the photograph or film, or
(b) another individual who is intended to tell the individual who appears in the photograph or film,
(2) But it is not an offence under this section for the person to threaten to disclose the photograph or film to the individual mentioned in subsection (1)(a).
(3) For the meaning of “consent” see section 33(7)(a).
(4) A person guilty of an offence under this section is liable —
(a) on conviction on indictment, to imprisonment for a term not exceeding 2 years or a fine (or both), and
(b) (b) on summary conviction, to imprisonment for a term not exceeding 12 months or a fine (or both).
(5) (5) For the purposes of this section, “personally connected” has the same meaning as in section 2 of the Domestic Abuse Act 2020.”
New clause 35—Duty to co-operate: children awaiting NHS treatment—
‘(1) The Commissioner must within 6 months after section 14 comes into force issue a request under that section to the NHS bodies in England mentioned in subsection (2) to co-operate with the Commissioner to secure that the objective set out in subsection (3) is met within 12 months after that section comes into force and continues to be met.
(2) The bodies are—
(a) every clinical commissioning group established under section 14D of the National Health Service Act 2006, and
(b) every other NHS body in England (as defined in section 14(7)) whose co-operation the Commissioner thinks is necessary to secure that the objective set out in subsection (3) is met.
(3) The objective is that where a child affected by domestic abuse has been referred for NHS care or treatment in the area (“Area A”) of a clinical commissioning group as a result of being so affected moves to the area (“Area B”) of another clinical commissioning group, the child receives that care or treatment no later than it would have been received in Area A.”
New clause 36—School admissions—
‘(1) The Secretary of State must, within six months after this section comes into force, secure that the school admissions code issued for England under section 84 of the Schools Standards and Framework Act 1998 (“1998 Act”) contains such provision as the Secretary of State considers necessary to achieve the objective set out in subsection (5).
(2) The Secretary of State must secure that the Commissioner is consulted about any proposed provision under subsection (1).
(3) The Welsh Ministers must, within six months after this section comes into force, secure that the Welsh Government school admissions code issued under section 84 of the 1998 Act contains such provision as the Welsh Ministers consider necessary to achieve the objective set out in subsection (5).
(4) The Welsh Ministers must secure that the Commissioner is consulted about any proposed provision under subsection (3).
(5) The objective is that—
(a) oversubscription criteria for admission to any school to which the school admissions code applies give the same priority to children falling within subsection (6) as to looked-after children (within the meaning of section 22(1) of the Children Act 1989), and
(b) the Code contains appropriate guidance about admission of children who have moved home to avoid domestic abuse or who are otherwise affected by domestic abuse.
(6) A child falls within this subsection if the child—
(a) is in the care of, or provided with accommodation by, a body exercising a function in respect of children affected by domestic abuse which, if the body were a local authority, would be a social services function of the kind mentioned in section 22(1)(b) of the Children Act 1989, or
(b) has moved home as a result of being affected by domestic abuse.”
Amendment 3, clause 1, page 1, line 15, after “abuse”, insert “(see subsection (4A))”
This amendment would provide the ability to further define specific abuse.
Amendment 25, page 2, line 3, after “that” insert
“, unless A believed they were acting in B’s best interest and the behaviour in all the circumstances was reasonable,”
This amendment is alternative to Amendment 1. It clarifies that economic abuse has to be unreasonable and not cover incidents of the withholding of money where it is intended to be in a person‘s best interest – e.g. someone caring for another or the partner of a gambling addict who gives consent. This amendment uses similar wording to the defence for controlling and coercive behaviour.
Amendment 1, page 2, line 3, after “effect”, insert “without permission, consent, necessity or any other good reason”
The aim of this amendment would be to specify that economic abuse has to be deliberate and unreasonable not just the withholding of money, for example, with lawful authority or good reason – e.g. someone caring for someone or the partner of a gambling addict who gives consent etc.
Amendment 2, page 2, line 5, leave out “acquire, use or maintain money or other property” and insert
“maintain their own money or personal property”
The aim of this amendment would be to specify that economic abuse must involve the person’s own money and not the lawful property of someone else.
Amendment 4, page 2, line 6, at end insert—
‘(4A) “Psychological, emotional or other abuse” includes but is not limited to—
(a) parental alienation, false allegations of domestic abuse by A against B, or
(b) A deliberately preventing B having contact with their child or children for no good reason.”
This amendment gives specific examples of domestic abuse – parental alienation, false allegations of domestic abuse and the prevention of contact with a parent for no good reason.
Amendment 24, page 2, line 6, at end insert—
‘(4A) “Psychological, emotional or other abuse” includes but is not limited to—
(a) parental alienation, or
(b) A deliberately preventing B having contact with their child or children for no good reason.”
This amendment is alternative to Amendment 4. It gives specific examples of domestic abuse – parental alienation and the prevention of contact with a parent for no good reason.
Amendment 5, page 2, line 6, at end insert—
‘(4B) “Parental alienation” is defined as a child’s resistance or hostility towards parent B which is not justified and is the result of psychological manipulation by parent A.”
This amendment defines parental alienation.
Amendment 6, page 2, line 7, leave out subsection (5)
This amendment removes the potential creation of two victims of a single act of abuse.
Amendment 7, page 2, line 10, leave out subsection (6)
This amendment is consequential upon Amendment 6.
Amendment 11, clause 6, page 4, line 3, after “the” insert “objective”
This amendment aims to ensure there is no bias and that pre-conceived notions do not form part of the identification of domestic abuse process.
Amendment 12, page 4, line 8, after “abuse” insert “;
(e) a gender-neutral approach to domestic abuse”
This amendment would recognise explicitly that domestic violence affects everyone regardless of their sex.
Amendment 13, page 4, line 23, at end insert—
“(h) monitoring the estimated number of actual victims of domestic abuse compared to those prosecuted for such offences according to the sex of the victim and making recommendations to address any differences in outcomes between the sexes;”
This amendment would make sure that male and female perpetrators of domestic abuse are prosecuted in similar relative numbers.
Amendment 14, page 4, line 23, at end insert—
“(i) monitoring the estimated number of actual victims of domestic abuse in same sex relationships by gender.”
This amendment would ensure that those in same sex relationships are separately monitored in line with the gender neutral approach to domestic abuse.
Amendment 40, clause 7, page 5, line 2, leave out “the Secretary of State” and insert “Parliament”
This amendment changes the provision enabling the Commissioner to report to the Secretary of State to one enabling the Commissioner to report to Parliament.
Amendment 41, page 5, line 5, leave out subsections (3) to (5) and insert—
‘(3) The Commissioner must ensure that no material is included in the report which—
(a) might jeopardise the safety of any person, or
(b) might prejudice the investigation or prosecution of an offence.
(4) The Commissioner must send a copy of any report published under this section to the Secretary of State.”
This amendment is linked to Amendment 40.
Amendment 15, clause 11, page 6, line 38, after “Board”)” insert
“through an open recruitment process”
This amendment would ensure that members of the Advisory Board are appointed via an open recruitment process.
Amendment 19, page 7, line 7, after the first “of” insert
“each of (a) male and (b) female”
This amendment would ensure that different people separately representing the interests of male and female victims are appointed to the Advisory Board.
Amendment 46, page 7, line 7, after “abuse” insert—
“in England;
“(aa) at least one person appearing to the Commissioner to represent the interests of victims of domestic abuse in Wales”
This amendment would require representation for domestic abuse victims in Wales, ensuring that both the interests of domestic abuse victims in England and Wales are equally addressed.
Amendment 20, page 7, line 9, after “with” insert
“each of (a) male and (b) female”
This amendment would ensure that different people separately representing the interests of male and female organisations are on the Advisory Board.
Amendment 16, page 7, line 11, leave out paragraph (c)
This amendment would remove the necessity for a representative of health care providers to be on the Advisory Board to make space for representatives of both male and female victims/groups.
Amendment 17, page 7, line 14, leave out paragraph (d)
This amendment would remove the necessity for a representative of social care providers to be on the Advisory Board to make space for representatives of both male and female victims/groups.
Amendment 44, page 7, line 21, after “abuse” insert “;
(g) at least one person appearing to the Commissioner to represent the interests of charities and other voluntary organisations that work with victims of sexual violence and abuse that amounts to domestic abuse in England”
This amendment will add a representative of sexual violence and abuse specialist services in a domestic context to the Commissioner’s advisory board.
Amendment 18, page 7, line 24, leave out subsection (6)
This amendment is consequential upon Amendment 17.
Amendment 42, clause 13, page 8, line 16, leave out from “must” to “on” and insert “report to Parliament”
This amendment changes the requirement for the Commissioner to submit an annual report to the Secretary of State to a requirement to report to Parliament.
Amendment 43, page 8, line 25, leave out subsections (3) to (5) and insert—
‘(3) The Commissioner must arrange for a copy of every annual report under this section to be laid before Parliament.
(4) Before laying the report before Parliament, the Commissioner must ensure that no material is included in the report which—
(a) might jeopardise the safety of any person, or
(b) might prejudice the investigation or prosecution of an offence.”
This amendment is linked to Amendment 42.
Amendment 21, clause 55, page 36, line 11, after the first “of” insert
“each of (a) male and (b) female”
This amendment would ensure that different people separately represent the interests of both male and female victims on the domestic abuse local partnership boards.
Amendment 22, page 36, line 15, after “with” insert
“each of (a) male and (b) female”
This amendment would ensure that different people separately represent the interests of both male and female organisations on the domestic abuse local partnership boards.
Amendment 45, page 36, line 22, after “area” insert “;
(h) at least one person appearing to the authority to represent the interests of charities and other voluntary organisations that work with victims of sexual violence and abuse that amounts to domestic abuse in its area”
This amendment adds a representative of Sexual Violence and Abuse specialist services in a domestic context to the Local Authority’s advisory partnership.
Government amendments 27 to 29.
Amendment 26, page 46, line 38, leave out Clause 64.
Amendment 8, clause 67, page 51, line 12, leave out paragraph (b)
This amendment is consequential upon Amendment 6.
Amendment 23, page 51, line 15, at end insert—
‘(4) If it transpires that the local authority has been given incorrect information or that it has taken into account false allegations of domestic abuse as the basis for granting a tenancy, it must revoke the secure tenancy within 7 days of receiving this information by giving the tenant 28 days notice to quit in addition to passing on such information to the police, where they are not already involved, as soon as is practicable thereafter.”
This amendment makes provision for someone who has made false allegations of domestic abuse to lose the home they gained under these false pretences.
Amendment 35, clause 68, page 51, line 28, at end insert—
‘(2A) The Secretary of State must issue guidance under this section which takes account of evidence about the relationship between domestic abuse and offences involving hostility based on sex.
(2B) In preparing guidance under subsection (2A) the Secretary of State must require the chief officer of police of any police force to provide information relating to—
(a) the number of relevant crimes reported to the police force; and
(b) the number of relevant crimes reported to the police force which, in the opinion of the chief officer of police, have also involved domestic abuse.
(2C) In this section—
“chief officer of police” and “police force” have the same meaning as in section 65 of this Act;
“domestic abuse” has the same meaning as in section 1 of this Act;
“relevant crime” means a reported crime in which—
(a) the victim or any other person perceived the alleged offender, at the time of or immediately before or after the offence, to demonstrate hostility or prejudice based on sex,
(b) the victim or any other person perceived the crime to be motivated (wholly or partly) by hostility or prejudice towards persons who are of a particular sex, or
(c) the victim or any other person perceived the crime to follow a course of conduct pursued by the alleged offender towards the victim that was motivated by hostility based on sex;
“sex” has the same meaning as in section 11 of the Equality Act 2010.”
Amendment 47, page 51, line 28, at end insert—
‘(2A) The Secretary of State must issue separate statutory guidance on domestic abuse that also constitutes teenage relationship abuse and such guidance must address how to ensure there are—
(a) sufficient levels of local authority service provision for both victims and perpetrators of teenage relationship abuse,
(b) child safeguarding referral pathways for both victims and perpetrators of teenage relationship abuse.
(2B) The guidance in subsection (2A) must be published within three months of the Act receiving Royal Assent and must be reviewed bi-annually.
(2C) For the purposes of subsection (2A), teenage relationship abuse is defined as any incident or pattern of incidents of controlling, coercive, threatening behaviour, violence or abuse, which can encompass, but is not limited to psychological, physical, sexual, economic and emotional abuse, including through the use of technology, between those aged 18 or under who are, or have been in a romantic relationship regardless of gender or sexual orientation.”
This amendment would place a duty on the Secretary of State to publish separate statutory guidance on teenage relationship abuse. The statutory guidance would cover not just victims of teenage domestic abuse but extend to those who perpetrate abuse within their own teenage relationships.
Amendment 9, page 51, line 30, leave out from “that” to the end of line 31 and insert
“victims and perpetrators of domestic abuse in England and Wales are both male and female.”
This amendment removes the sex specific reference to females, to include male victims of domestic abuse and reflect the fact that both men and women are perpetrators of domestic abuse.
Government amendment 30.
Amendment 10, page 51, line 31, after “female”, insert
“and this should in no way exclude male victims from the protection of domestic abuse legislation and services for survivors.”
This amendment is an alternative to Amendment 9.
Government amendments 36, 37, 31, 32, 38, 33, 34 and 39.
Victoria Atkins
Homes should be places of love and safety, but for 2.4 million people across the country they are not. We want the abuse to stop, and we want victims to live, peaceful, safe and happy lives. That is why the Government are bringing forward this Domestic Abuse Bill.
Domestic abuse does not just affect adults. It affects the children living in abusive households too. The Government have always recognised the devastating impact that domestic abuse has on a child who sees, hears or experiences it. Indeed, the need to consider the effects on children runs through the Bill, through the draft statutory guidance and in our non-legislative work. As I hope is acknowledged, our approach throughout the extensive scrutiny of the Bill has been to listen, and that is exactly what we have done. We have listened carefully to my right hon. Friends the Members for Maidenhead (Mrs May) and for Basingstoke (Mrs Miller). We have listened to my hon. Friend the Member for Cities of London and Westminster (Nickie Aiken) in Committee, as well as other Members across the House, including the hon. Member for Blaydon (Liz Twist), who have encouraged us to do more. I am, therefore, pleased to introduce new clause 15 to the Bill, which states that children who see, hear or experience domestic abuse are victims.
As with the statutory definition in clauses 1 and 2, we expect the new clause to be adopted more generally by public authorities, frontline practitioners and others responding to domestic abuse. Indeed, it is vital that locally commissioned services consider and address the impact of domestic abuse on children.
We have also listened to the harrowing experiences of victims going through the family and civil courts. It is vital that victims of domestic abuse are supported to give their best evidence in court and to minimise the distress that this can cause. The Bill on introduction already ensured that victims of domestic abuse are automatically entitled to special measures in criminal proceedings, meaning that they can, for example, give evidence from behind a screen or via a video link. New clauses 16 and 17 now extend that automatic eligibility to victims giving evidence in family and civil proceedings.
In May last year, the Ministry of Justice established a panel of experts to review how the family courts deal with the risk of harm to children and parents in private law children’s cases involving domestic abuse and other serious offences. The panel received more than 1,200 submissions and the report was published just a couple of weeks ago. The submissions highlighted that many victims of domestic abuse feel extreme anxiety about appearing in the family court and coming face to face with the perpetrator. Anyone who has tracked the progress of this Bill, or who has worked with and listened to victims outside the confines of this Chamber, will know just how terrible some of those experiences can be. The panel has recommended that the provisions in the Bill concerning special measures in the criminal courts should apply to all private law children’s cases in which domestic abuse is alleged. New clause 16 does that, and new clause 17 achieves the same in civil proceedings.
However, we have gone further with regard to civil proceedings, as new clause 18 prohibits cross-examination in person where such cross-examination by the perpetrator is likely to diminish the quality of the witness’s evidence or would cause significant distress to the witness. This new clause also prevents the victim from having to cross-examine the alleged perpetrator in person, with counsel being appointed by the court, if necessary. In each scenario, such cross-examination can serve to re-traumatise victims and, again, prevent them from giving their best evidence in court. Cross-examination in person is already prohibited in the criminal courts. The Bill, on introduction, extended the prohibition to the family courts and, on the recent recommendation of the Civil Justice Council, we will now ensure that the bar applies across all courts. These changes will have a profound impact on victims in all our constituencies who are seeking justice.
Victoria Atkins
The right hon. Lady makes a point that I know would, at first blush, be attractive, but the problem is that we do not have that bedrock of evidence. We are coming to the Dispatch Box with an open heart, and I hope that it is acknowledged across the House that that has been our approach throughout the Bill proceedings. I do not know whether she has had a chance to read the report that we published last week into the work that the Home Office has done. There has been some very good work by charities, through the tampon tax funding and so on, but we are unable to put in the figures that we need to in order to undertake the sort of reform that she is urging upon us. We must have the data to ensure that anything that we are putting forward in the longer term best meets the needs of victims and is sustainable.
A person who comes to this country on, for example, a six-month visitor visa falls under one of the categories that one of the witnesses gave evidence to the Joint Committee on, in the evidence that was given to us as part of this review—the Southall Black Sisters. The right hon. Lady will know that people on visitor visas, who may be here for six months, will have made representations to the Home Office specifically on their financial circumstances, and we want to ensure that we can treat such people fairly and give them access to the help that they need. It is why we are very keen to focus on support rather than to follow the urgings of others that we deal with immigration status before we look at support. We want to help these victims to access help first and foremost as victims.
The pilot programme is to determine how we ensure that victims can obtain immediate access to support, and that any future strategy meets the immediate needs of victims and is fit for purpose. Support for migrant victims is a very important issue for all of us. We recognise that, which is why we are committed to launching the pilot project as quickly as possible. We are currently reviewing the options for implementing the pilot and expect to make further announcements in the summer, ahead of its launch in the autumn. We must resist the urge to act before we have the evidence on which to base comprehensive proposals, to ensure that measures are appropriate.
As I say, I want to give plenty of time to Members to debate the Bill at this important stage of its scrutiny. Before I do, I thank hon. Members—I hope I do not speak too soon—for the very constructive, collegiate approach we have taken, all of us, on this Bill. I know some very different viewpoints may be held on particular issues that will be debated in this Chamber this afternoon, but I know that the House will keep at the forefront of its mind that we are debating this Bill because we all want to help victims of domestic abuse and we all want the abuse to stop.
Mr Deputy Speaker (Mr Nigel Evans)
As the Minister has said, there is a lot of interest, not surprisingly, in wanting to take part in this debate. For the first four non-Government contributors, I will allow seven minutes, and thereafter the limit will be five minutes. Even with that, I am afraid not everybody is going to get in.
Jess Phillips (Birmingham, Yardley) (Lab)
I would like to start by saying that we on the Labour Benches fully support all the Government’s new clauses and amendments today. Many of them and, in fact, many of the changes to the Bill since its very first draft, all those many moons ago, have been things that we on the Opposition side of the House have championed from both the Front and Back Benches. The Government have taken an approach throughout the whole process of this Bill of seeking always to try to improve it. For this, we are very grateful, and the victims in this country will be grateful. The Bill still has a number of processes to go through in the other place, and I very much hope that the Government will continue to have this attitude to positive change as the Bill progresses, although let us hope it progresses perhaps quicker than it has in the past.
To touch on a number of the Government’s amendments very briefly—in support—the changes suggested to the family courts were, by and large, amendments tabled by the Labour party in Committee, and they come hot on the heels of the Family Law Panel review, which was a very good, thorough and timely piece of work. I want to praise my hon. Friends the Members for Hove (Peter Kyle), for Sheffield, Heeley (Louise Haigh), for Swansea East (Carolyn Harris) and for Gower (Tonia Antoniazzi), who worked tirelessly on behalf of their constituents and victims across the country to seek that review. I make a very special mention of Women’s Aid, and of Rachel Williams, Sammy Woodhouse and Claire Throssell—all victims and campaigners who have pushed family law reform for victims of sexual and domestic violence through their own pain, suffering and loss.
The amendment on including children in the definition of domestic abuse was again an amendment tabled by the Labour party in Committee. For this, we are eternally grateful, and I look forward to seeing it in today’s amended Bill. Huge thanks for this go to all the children and young people who joined the campaign to speak of their experiences of living with domestic abuse and about how, without question, this had victimised them. I want to say thank you to Charlie Webster and, in memory of Karl, Jack and Daniel, we once again pay tribute to them. To all the children’s charities from national groups such as Action for Children, Barnardo’s, the National Society for the Prevention of Cruelty to Children and the Children’s Society to local grass-roots campaigners such as Free Your Mind in London, WE:ARE —Women’s Empowerment And Recovery Educators—in Birmingham and Wirral Women and Children’s Aid in Merseyside, I say thank you for all seeing those children and fighting for them.
As for amendments regarding the rough sex defence, so ably championed by my inimitable right hon. and learned Friend the Member for Camberwell and Peckham (Ms Harman), the hon. Member for Wyre Forest (Mark Garnier) and the new hon. Member for Newbury (Laura Farris), as well as by the brilliant campaign We Can’t Consent To This, I simply want to say one thing. Natalie Connolly’s name and story has rung out around this Chamber and been told in many newspapers, and the bravery of her family will see this law changed. Today, I do not want to remember her for how she died or to allow a violent man to get to say what her story was. I simply want to remember Natalie, a brilliant, beautiful, bright mother, sister, daughter—a woman who had a story all of her own about the things she loved and cared for. I hope that now the story of Natalie Connolly can be that: one that centres her as a human, just like all of us, not the story that somebody else told.
As the Minister has alluded to, we are debating new clause 23, which stands in my name and that of the Leader of the Opposition, and we return to what seems now like an age-old issue: how we deal with victims of domestic abuse with no recourse to public funds. In Committee, the Minister and I disagreed over the terminology for who we were talking about. I decided to refer to our care workers, NHS workers, people in this building serving us our drinks, to highlight the kind of people I was talking about when I referred to people with no recourse to public funds. The Minister, quite rightly, cited evidence of asylum seekers or even those with irregular immigration status.
Fundamentally, it does not matter on which rhetorical side of the fence we fall. We are talking about people, humans, who, when they have been raped, beaten, controlled and abused, before we ask them how we can help, first we ask what stamp is in their passport. This cannot be right. What is more, the situation as it is today is not only hindering support to victims; it is helping to leave rapists, abusers and violent perpetrators on our streets.
Since our debate in Committee, a number of police officers from across the country have been in touch with me. This is what they told me. One officer said:
“For years now, we have faced difficulties trying to effectively safeguard subjects of very serious offences. There are some things in place, such as the destitution domestic violence concession, but this process can take weeks to sort. The refuges are usually very helpful, but they obviously cannot operate without being paid, so we are often left with subjects being isolated in hotels for weeks, which is a bad outcome for everyone.”
Another officer from a different force got in touch and said:
“The current situation has a serious impact on the police’s safeguarding duties. It also has a knock-on effect on our ability to investigate domestic abuse as crimes, since officers are distracted by the need to find alternative safe accommodation and support, rather than concentrate on their primary role, which is to investigate the commission of potential criminal offences.”
The Minister is right to seek evidence, so I have looked to my own force, in the west midlands, which is a place obviously close to my heart. There the police public protection unit last year, out of police force funding, spent £23,161 on temporary accommodation. While some of this will have been due to the pressure on refuge places, I understand from the force that a common reason is accommodating out of police resources victims with no recourse to public funds. As the Minister seeks to gather evidence, I wonder if she will ask every police force how much police money—money that could fund a police officer—they are spending on such temporary accommodation.
The Government’s own draft guidance essentially admits that no recourse to public funds is a barrier to women getting out of abusive situations. In the Government’s words:
“Victims who have entered the UK from overseas may face additional barriers when attempting to escape domestic abuse that are related to their lack of access to public services and funds, leading to higher dependence on the partner or family that has supported their being in the UK. This may be exploited by partners or family members to exert control over victims.”
The police are saying this is a problem, all the expert charities bar none are saying it is a problem, Members of Parliament who face these issues every day are saying it is a problem, and the Government’s own guidance highlights that it is a problem and is being used by perpetrators, so why do we not seek to fix the problem? Our new clause seeks to meet the Government in the middle using what they suggested in Committee. We are suggesting that for the year of the pilot project outlined by the Government they trial the end to no recourse to public funds for victims of domestic abuse.
We have listened to the Government’s concerns regarding the pathways to settled status and essentially pleaded with Ministers to test whether giving these victims access to public funds will make a difference. The experts all say it will. Although I recognise what Ministers are saying about needing hard data, you cannot prove a negative; we will never know how many people turned up for help but were turned away because access was not available to them.
Several hon. Members rose—
Mrs Theresa May (Maidenhead) (Con)
May I say how much I welcome the fact that the Bill has returned for its Report stage and Third Reading? This is a very important Bill. I will not be able to speak on Third Reading, so I shall take this opportunity to thank the Ministers who have shown their significant commitment to the Bill in taking it through the Committee and the House. I thank all the officials in the Home Office and the Ministry of Justice, who I know, from my time in the Home Office, also have a very real commitment to seeing that we have improved legislation to help the victims of domestic abuse. I also thank all Members of this House, because this is truly a Bill where there has been cross-party support and where every effort has been made to ensure that the Bill can go through in the best shape that it can. I will come to an area where there is obviously, as we have seen, a difference of opinion across the Chamber, but I think that this has been an excellent example of the House at its best, working with Government to improve the lives of victims up and down the country.
I want to welcome, particularly, two of the amendments that the Government have put forward—first, new clause 15, which relates to children. I have said before in the Chamber that this is, as my hon. Friend the Minister referenced, an important area. For too long, we turned a blind eye to the impact that domestic abuse had on children in a home in which that abuse was taking place. It is absolutely right that we should now recognise that those children are also affected. Their lives are affected and for so many, their whole future adulthood has been affected by what they have experienced, seen or heard within their home, where domestic abuse is taking place.
I also particularly welcome the way in which the Government have dealt with the issue of the rough sex defence. I pay tribute to my hon. Friend the Member for Wyre Forest (Mark Garnier) and the right hon. and learned Member for Camberwell and Peckham (Ms Harman) for the campaign that they have fought to keep this at the forefront of thinking and ensure that some changes could be made in relation to the Bill.
I want to pick up on what is—as is clear from what the shadow Minister, the hon. Member for Birmingham, Yardley (Jess Phillips), has just said—an area of disagreement across the Chamber in relation to migrant women. I and others across the House will of course have dealt with cases of constituents who have come to this country, very often with the hope and expectation that they would marry and have a happy and settled life here in the future, only to find themselves the victims of domestic abuse and to find that their immigration status, or their uncertain immigration status, is used by their abusers as a further way to abuse them and keep them within that abusive relationship. Obviously the DDVC acted in relation to those who are here on partner visas, but there is concern that there are those who still fall through the net and find themselves unable to access the support necessary for them.
Several hon. Members rose—
Dame Diana Johnson (Kingston upon Hull North) (Lab)
May I start by thanking the Minister for the helpful and courteous way that she has navigated this Bill through the House over the years? I was a member of the draft Bill Committee and then of the Bill Committee that met just before the general election in 2019. I have watched with interest as the Bill has developed and, I am in no doubt, improved. I also thank my own party’s Front-Bench team for their work and the shadow Minister, my hon. Friend the Member for Birmingham, Yardley (Jess Phillips), for her tireless campaigning.
The issue that I want the House to consider today is one that has not been discussed before in all the hours of debate around domestic abuse, and it has arisen out of the covid-19 pandemic and the steps that the Government have taken to ensure that women could access reproductive healthcare services during lockdown. The Government made it very clear that that was going to be a temporary measure and that it would be revoked as soon as possible. Although the Chair of the Women and Equalities Committee chided me in her contribution for tabling new clause 28, I am sure that she will understand that the opportunities to raise these matters are very few and far between and it seems to me that if you don’t go fishing, you don’t catch any fish.
New clause 28 is supported by the Royal College of Obstetricians and Gynaecologists, the Royal College of Midwives, the Faculty of Sexual and Reproductive Healthcare, the British Society of Abortion Care Providers, the British Pregnancy Advisory Service, Marie Stopes, the End Violence Against Women Coalition and Women’s Aid. Hon. Members will be aware that current abortion law restricts the ability of healthcare professionals to provide care to women. The Abortion Act 1967 requires that abortion takes place on licensed premises.
That means that, outside covid regulations, women have to attend a clinic or hospital to administer the first pill as part of an early medical abortion, even if a woman is unable to safely attend a clinic because she is in an abusive relationship.