The Parliamentary Under-Secretary of State, Home Office (Lord Taylor of Holbeach) (Con)
My Lords, I conclude this very useful debate by thanking the noble Baroness, Lady Thornton, for the clarity with which she has presented the debate to us today, and for giving us the chance to consider a matter in which all of us here are interested. I think we all agree that domestic abuse is an unacceptable crime that shatters lives, and one that the Government are committed to tackling. That has been widely shared by all speakers. I am determined to see a society where violence against women and girls is not tolerated, and where domestic violence generally is not tolerated. As my noble friend Lord Paddick very courageously pointed out, this is not confined to conventional heterosexual relationships but can occur within any relationship, and it is wrong wherever it happens.
I want to be absolutely clear: abusive behaviour in the home is the worst violation of the trust that those in close relationships place in one another. Such behaviour is already criminal. The fact that it takes place behind closed doors does not make it any less serious—quite the reverse. This Government have expanded the non-statutory definition of “domestic abuse” to include coercive and controlling behaviour. The definition complements a wide range of statutory offences that encompass domestic violence and abuse. The Government have also introduced stalking legislation, which, alongside harassment offences, can apply equally to those in relationships by criminalising a course of conduct. Therefore, a course of conduct can reinforce particular cases presented. Behaviours captured by this framework include the type of subversive abuse that has been highlighted today, such as deploying threats, damaging property, controlling someone’s manner of dress or preventing them seeking medical assistance. In a way, I agree with my noble friends Lord Lester and Lady Hamwee that the legal framework is sufficient. However, I will go on to explain how there are deficiencies in the way that it is used.
The framework is enhanced by sentencing guidelines that make it clear that an offence committed in a domestic setting should be seen as more serious. Among the aggravating factors highlighted by the guidelines are abuse of trust, abuse of power and a proven history of violence or threats in a domestic setting by the perpetrator. The cumulative impact of these guidelines is that courts are entitled to impose stiffer penalties on perpetrators of domestic abuse than on others who commit equivalent crimes where a domestic relationship is not involved. It is critical that the police and prosecutors build cases that incorporate those factors to ensure that sentences are commensurate with the offending behaviour. That is what Parliament has willed, through its legislation in this area and through the debates we have had. I will return to that point when we talk about Her Majesty’s Inspectorate of Constabulary.
The Government are committed to ensuring that the existing legal tools are used to provide access to justice for victims of domestic abuse. This is demonstrated by our announcements that we will roll out two new legal remedies for the police: domestic violence protection orders and the domestic violence disclosure scheme, which is commonly known as Clare’s law. That is why we have continued the specialist domestic violence courts—SDVC—programme, which is an essential combined-agency approach. All noble Lords would understand that this is frequently a combined-agency area, and a combined-agency approach to tackling domestic violence is important.
On my noble friend Lady Gardner of Parkes’s point, it is absolutely right that we also consider male victims of domestic abuse. All our policy initiatives are gender-neutral in recognising what domestic abuse means. We have also listened to those campaigners who have been clear that new laws and processes are not sufficient in themselves and that the way in which the police respond to abuse more widely needs to be addressed. The Government agree that it is critical that front-line agencies respond to domestic abuse using the full extent of the law. In September last year, the Home Secretary commissioned HMIC to review the police response to domestic abuse because she was concerned that it was not as good as it should be. HMIC reported its findings on 27 March, and I am sure that the Grand Committee will agree with me that the report made for very worrying reading. We agree that transparency is important, and that is why the Home Secretary commissioned HMIC to review the police response, and is now chairing a national oversight group which will issue quarterly reports, so we can expect progress reports on a regular basis.
Every 30 seconds, a victim of domestic abuse summons up the courage to call the police. What was the figure—that it takes 40 incidents before somebody reaches that point? This is the measure of what we are dealing with. When a victim reaches out for help it is vital that the police are equipped to respond effectively and end a cycle of abuse that in many cases will have been going on for years. Quite simply, the police response to domestic abuse at the moment is not good enough.
On the day that HMIC published its report, the Home Secretary wrote to chief constables and police force leads on domestic abuse, making clear her expectation that, in line with HMIC’s recommendations, each force will have a plan in place by September to improve its response to domestic violence and abuse. The Home Secretary has also committed to chairing the national oversight group I have mentioned to lead immediate improvement. The group has a clear and specific mandate to monitor delivery against each of the HMIC recommendations. The Home Secretary will issue quarterly reports, as I have said. The Government will ensure that these important recommendations do not become yesterday’s news. This is a live issue.
In considering the case for new laws to criminalise patterns of abuse and control, it is critical that we look closely at HMIC’s findings. I would like to take this opportunity to draw out a few key points from the report. HMIC have found that the following factors are contributing to the poor police response: a lack of visible leadership and clear direction set by senior officers; alarming and unacceptable weaknesses in some core policing activity, in particular the collection of evidence by officers at the scene of domestic abuse incidents; poor management and supervision that fails to reinforce the right behaviours, attitudes and actions of officers; failure to prioritise action that will tackle domestic abuse when setting the priorities for the day-to-day activity of front-line officers and assigning their work; officers lacking the skills and knowledge necessary to engage confidently and competently with victims of domestic abuse; and extremely limited systematic feedback from victims about their experience of the police response.
I respect my noble friend Lord Paddick’s experience as a police officer and I fully understand the demands that all of us are placing on the police at this time, but his speech was a graphic illustration of the sort of abuse that leads to violence. We need to encourage the police to take those early signs seriously before violence occurs.
These failings are not about shortcomings in the law, nor is the finding that in a review of 600 actual bodily harm police files, photographs of injuries were taken in only half the cases. We do not rule out the possibility that in developing a better police response to domestic abuse, we will expose evidence that supports the need for a change in the law. But our immediate focus must be on delivering the operational change that will have an immediate impact on victims’ experience and their confidence in reporting what is happening to them.
I will deal with a few of the points that have been raised—there have been a lot of very good points, I have to say. I say to the noble Baroness, Lady Thornton, that the Protection from Harassment Act does allow for patterns of behaviour to be taken into account. She asked me about the statistics. I cannot give her up-to-date statistics. I will write to her—in fact, I will write to all noble Lords and cover points that I would have liked to have been able to address. I am being passed notes but I am running out of time. In 2012, 58.9% of acts of harassment without violence—4,270—were flagged as domestic violence; with violence, 55.4% were flagged as domestic violence. I will give these figures in a letter because that is easier than reading them out here today.
I was asked about the Istanbul convention. The Istanbul convention goes a little bit further. We have indeed signed it. It needs ratifying. We are looking to the Joint Committee on Human Rights to provide that for us. I am grateful for the way in which my noble friends Lady Jenkin and Lady Gardner of Parkes congratulated the Home Secretary on her determination in this matter. I also thank my noble friend Lady Jenkin for her comments on Nick Alston, who I happen to know and who I think is doing a great job in Essex with Be Safer Essex and Essex Change—all these groups in which the police are playing a role. Having the PCCs’ confidence could be very important to this.
What faces us is no small challenge. It is a challenge for us in politics; it is a challenge for the police themselves. I am determined that we will encourage more victims to come forward, meaning that more perpetrators will be brought to justice and more cycles of abuse will be disrupted, as we take a step closer to a society in which domestic abuse is a thing of the past.
My noble friend Lady Hamwee asked me the impossible question—she often does. I do not have the answer to how we get victims to report things to the police but she raised a very important question and I hope that I will be able to address it in my letter. With that, I must sit down.