Nicole Jacobs gave evidence.

We are now sitting in public again and the proceedings are being broadcast. Before we hear from the witness, do any Members wish to make declarations of interests in connection with the Bill?

I am chair of the all-party parliamentary group on restorative justice.

I would like to declare, in the interests of full transparency, that prior to my election I was a non-executive director of what was then Her Majesty’s Prison and Probation Service and a member of the Sentencing Council. I was also a magistrate for 12 years and previously a member of the independent monitoring board of HMP Young Offenders’ Institution Feltham. I hope that covers the full gambit.

In that case, I should probably declare that I have run sexual violence services, domestic abuse services, female offender services, human trafficking services and sexual exploitation services, as well as being the chair of the all-party parliamentary group on children at the centre of the family court and the vice chair of the all-party parliamentary group on domestic abuse. I think that is it.

Thank you. I am happy to take declarations throughout proceedings if any Member thinks there is something they need to declare as we go through.

I welcome our first witness this morning, Nicole Jacobs, the Domestic Abuse Commissioner. We will now hear her oral evidence.

Before calling the first Member to ask a question, I remind all Members that questions should be limited to matters within the scope of the Bill and that we stick to the timings in the programme motion that the Committee has agreed. For this session, we have until 9.55 am. Could I ask Nicole Jacobs to introduce herself for the record, please?

Nicole Jacobs:

Good morning, everyone. I am Nicole Jacobs. I am the Domestic Abuse Commissioner for England and Wales.

Thank you. Jess Phillips will ask the first question.

Q Hello, Nicole. Thank you for coming in. First and foremost, can we have your overall feeling about the Bill? What is your overall assessment of the Bill and how it will or will not move things forward for victims?

Nicole Jacobs:

Thanks for having me today. In general, I have huge hopes for this Bill. If amended and changed, which I am sure we will talk about, it could really produce momentous change for victims of domestic abuse. I am here to talk about victims of domestic abuse. You obviously have a wider scope of victims to consider, but victims of domestic abuse are highly prevalent; in my mind, that also includes and has a very strong link to so-called honour-based abuse, forced abuse, sexual violence, stalking and harassment, because, for the vast Majority of people in those categories, you would find that their perpetrator is either a current or former partner.

It is hugely important to think about, in each and every part of the Bill, where we could improve and how we could go further to make it more meaningful on the ground. That is my interest. As things stand now, my topline view is that there is a lot to work with here, particularly regarding the duty to collaborate. That has huge potential to transform services on the ground, if the provisions are implemented correctly, which is what we need to spend some time talking about.

Q How do you feel that the duty to collaborate in the Bill could be strengthened? You have said that it is a good base to start on. How do you feel that we could strengthen it as the Bill goes forward?

Nicole Jacobs:

First, I hope you will consider the mapping report that my office produced; I will tell you a little about it. When I became commissioner, that was one of the responsibilities of my role, and last year we produced a mapping report of services for England and Wales. That is a very important document, partly because we have not had one before. It brought together information from commissioners, from domestic abuse services on the ground, and, really importantly, from thousands of victims who fed back about their experiences of seeking services in the last three years—on what they wanted, what they got, and what is actually out there. We have not had that information at our disposal before. We have a sense of what is out there and we have other types of reports, but this is pretty comprehensive.

The report showed how huge the gaps are. Part 4 of the Domestic Abuse Act 2021 brought us the accommodation-based duty, which of course was a huge step forward, but we have to appreciate that 70% of victims go to community-based services, which is what you are looking at in this duty to collaborate and how it is funded. We know that the vast Majority of victims—over half—were not able to find services that they wanted or needed in that category. There are higher rates when it comes to services for children, and lots of variability regionally in services for children and domestic abuse. We are looking at huge gaps in mental health counselling and therapeutic support, and in services for perpetrators to change.

The stark reality that I want to get across to you—although you will know this, because you have constituents—is that there are huge gaps. We have come a long way in our thinking and our legislation about domestic abuse, but the services are not sustainably funded. That is simply the reality. I ran services myself, before I was in this role. To give you a sense of things, the charity I ran had about 34 different funding streams, which were always cutting off, with cliff edges at various points. It was a struggle to make ends meet and to keep services continuing. That is what the services are doing. They are not sitting in core budgets. Money is coming to them—and the good news is that, in particular in the past few years, we have had great money through the Ministry of Justice and other sources—but it comes to the local area in a not very coherent way for the services to plan and think about filling the gaps.

The duty to collaborate, therefore, is potentially truly transformational, but to be so it is not as simple as saying, “You must collaborate”, which is how I read some of the Bill as it stands. Services will have to plan for collaboration and bring partners together, while sometimes the geographical mix does not fit exactly and certainly the timescales do not fit. There has to be a joint strategic needs assessment, which sounds administrative, but it is the only way to make the best of such duties. That takes some time. Under part 4 of the Domestic Abuse Act, money was set aside for the needs assessment of housing and accommodation-based planning, and we have seen that in other types of things, like our serious violence duty. A very practical way to make sure that the duty is implemented well is to have the joint strategic needs assessment.

Also, very importantly, when partners get together and look around the table, cobbling everything together and getting everything in line as perfectly as they can, inevitably they will find that they do not have funding for certain things that we would all agree that we need—services for children particularly, or for domestic abuse. They will then need some kind of mechanism to feed back to us here and to decision makers in Government to say, “We have this gap. How is it going to be filled?” There has to be some kind of responsibility back and forth. That is the only way we will move in any kind of meaningful way to fill the gaps.

Q Would you say that the Bill needs to be amended to be specific about strategic needs assessments in the case of the duty to collaborate?

Nicole Jacobs:

Absolutely, and there needs to be some kind of language that creates a responsibility for when the gap remains and how it is dealt with at the national level.

One other quick thing to point out from the mapping is the need for “by and for” services. What I mean by that is services that are very specific to particular groups: deaf and disabled survivors; black and minoritised survivors; LGBTQ+ survivors. What we found in our mapping is good news—that they are, by any measure, the most effective services for victims. We can see that because in our survey we could compare people who got to those services and how they felt with people who did not. That is very unusual, because usually we hear from reports and surveys of all people who made it to a service; it is great to hear about that effect, but in this mapping we could compare the two groups, so we can see how effective the services are.

We can also imagine how those services could be not effectively funded at the local level, because their geographic footprint might be a little larger, so the planning needs to be more regional or national. Another thing that has to be recognised at this stage is that there is a need for a “by and for” pot, which would help to supplement what is then implemented locally.

Q I have three more quick points. Do you feel that the Bill in any way protects victims outside our criminal justice system—in some of the instances you just mentioned, for example? This is a justice Bill. What about in the family courts?

Nicole Jacobs:

Certain parts of it could. Of course, that is highly dependent on what kinds of services are out there and what they are funded to do. On the definition of an independent domestic violence adviser and an independent sexual violence adviser, that work really needs refining, as does the duty to collaborate in terms of community-based services. You are absolutely right: most victims do not report to the police. The reality is that it is probably one in six. We published a report where we scoped specifically which community-based services are oriented to criminal and family court proceedings. For the family court, it is much less—around 18%. We can send that to the Committee.

Q Would you like to see something more specific in the Bill about support needed in the family court in cases of domestic violence?

Nicole Jacobs:

I would, and I would go even further. You will spend a lot of time in this Committee hearing from people who will tell you about how to correct the criminal justice response as if it starts only with our statutory partners—the police, the Crown Prosecution Service and others. I beg you to realise—I have done this work myself—that the real meaningful work for a victim is when you have the community-based service, the IDVA or ISVA, in the mix and interacting with the police and those partners on a daily basis. That is where the problem solving is. You will get to a point where you will not have to worry as much about invoking the victims code because everything is taken care of.

Q On IDVAs and ISVAs, there are specific clauses in the Bill with regard to independent domestic violence advisers and independent sexual violence advocates, as we used to call them—call the “A” whatever you want. There has been some pushback from the sector with regard to the need to define an IDVA and an ISVA, and that it forgets all the other community-based support—floating support, housing support and everything else—and that putting everything under an IDVA umbrella is a dangerous thing to do. What is your view on that?

Nicole Jacobs:

That is a really important point. Imagine that you are on a team at a local level—that was my reality before I came into this role. In central London, in the year before I was appointed, 4,000 victims were referred to the service. They cannot be supported by a team of IDVAs as if that is all that is needed. The most successful teams are ones that are surrounded by other types of role that recognise that not all people will interact with the police or the criminal justice system, but they will need help and very practical support. I do not know whether I am putting that in the right way.

These roles have huge caseloads, just like a lot of our frontline services. They cannot be everything to everyone. A big step forward in the process would be to carve out and be clear. I am not as concerned about what roles are called; it is about the skills and knowledge that one needs to be at the table advocating with and alongside victims in the criminal justice system and other systems—housing, health and children’s social care. What are the skills and knowledge, and what tables should they sit at? The best work that I have ever done was when I was in a working system where I knew that there was an operational group with the police, the CPS and others that was oriented to that work. You could problem-solve. You could bring issues to the table that everyone grappled with together. You cannot do that without the advocate for the victim being in the mix and being supported to do that.

There is another thing that, if it were in the statutory guidance or provisions, would allow a huge step forward. We have done a lot of funding of these roles, but not a lot of development of what that really means. What is the salary? What are the skills and knowledge? What is the practice development for this type of criminal justice advocacy or family court advocacy? That would move us substantially forward. Those are all possibilities that we can achieve in the Bill if we get the guidance, funding and language right.

Finally, you are an independent person, no doubt, but you work very closely alongside the Home Office, and I am sure that you have worked with the Ministry of Justice as well. What is your view of the sudden, last-minute—sorry, I should not put judgment into this. What is your view of the inclusion of part 3 of the draft Victims Bill in this Bill? As one of the nation’s leading victims’ advocates, were you aware that the Victims Bill was no longer going to be the Victims Bill and was going to be something else?Q

Nicole Jacobs:

No. I had heard something along the lines of there being an interest in making sure that there were improvements to parole. I was surprised, and I understand the arguments made about the optics of it. On a practical level, I feel strongly that we really have to achieve the ambition of the Bill.

On the parole reforms, I talk to families, particularly bereaved families, and they often do not have a very good experience of the parole system, in terms of feeling informed and feeling that their concerns about release are being dealt with. One of the things that I am most curious about regarding the last-minute changes is how strong the parole provisions will be and how the family liaison care will be improved. I am very interested in what mental health assessments will be required when prisoners are released who have committed domestic abuse or murder. You are right: my thinking about this is probably less developed, because this was added on quite quickly.

I have questions on two issues. The definition of victim in the Bill is quite broad in some ways. What do you make of that? Is that a good idea, because it wraps up categories of individual who previously would not have been included, or does it run the risk of widening the category so much that you have difficulty providing the core service that you were talking aboutQ ?

Nicole Jacobs:

I think broader is really positive. If you were to limit the definition to people who are accessing criminal justice remedies, then when it comes to domestic abuse, for example, that would narrow it way too much. Of course, the Domestic Abuse Act has a definition of children as victims in their own right. I am quite comfortable with the definition and feel good about what it is signalling, which is that in the victims code we want support for all victims, regardless of whether they engage with the police, for example. Services should be there.

One of my main concerns when it comes to genuinely providing services for all is that with domestic abuse, you are still leaving out migrant survivors and people who are in this country as students or with some other visa status; they have trouble accessing domestic abuse services. That could be fixed quite simply by allowing recourse to public funds for domestic abuse services for the period when a migrant is here—often victimised by a citizen here, let’s keep in mind. Having the provision of care that any other victim has: that is the one key thing I would highlight.

Q Do you think that there is any sort of risk to the core service from widening it out too much?

Nicole Jacobs:

When I think of the impact of the victims code, the broadening of the victim definition impacts the fact that we want services for all in terms of what they need. A victim of domestic abuse, for example, may not ever have talked to the police, but may need housing support or support for their children and all sorts of things. Having that in place is really important. When you are talking about the obligations in the code in relation to people being informed about their case and all those things, to some degree quite a lot of victims will not need that if they are not engaging. In other words, I do not think it adds a huge amount of pressure that does not already exist on the statutory services in that regard.

Q In terms of the core service, you have described a set of skills and knowledge that is needed. I think you were saying, in effect, that for either of the roles—independent domestic violence adviser or sexual violence adviser—you would need those same skills. Do you want to amplify that and tell us a bit more about how you would see this profession or area of skills develop?

Nicole Jacobs:

I would not want the Committee to believe that there are not existing ways of training. Earlier in my career, I myself was part of developing the core training for IDVAs and doing that initial training, so I am fairly familiar with that. It is an accredited training. A lot of commissioners at the local level will require that level of training when they are tendering for community-based domestic abuse services, for example. I think you will hear from some charity CEOs later who can give you some more detail. Where we are is that while that is often included in commissioning standards, we need something more specific, more uniform, so that we—and, frankly, all our statutory partners—are really clear on what skills and knowledge these roles bring. I feel that we have this ability and need to carve out very specifically for criminal justice work and family court work what the skills and knowledge are that you need in particular.

You have three minutes left.

Nicole Jacobs:

Sorry. This is my job—I could talk about it all day. I think there is real scope to better define what good looks like for that, and that will impact the victims code and compliance with it. It impacts the multi-agency working at the local level. That would be a huge step forward.

I have some very quick questions, with hopefully very quick answers. On that particular point, is it more important to describe the skills or the job titleQ ?

Nicole Jacobs:

The skills.

Q Thank you. Under duty to collaborate, you spoke about a joint strategic needs assessment. I like that a lot. Who would the responsibility for that sit with? Would it be your role or the Secretary of State’s?

Nicole Jacobs:

No, I see that a lot more as a role at the local level.

Q But who has oversight at a national level? Who enforces the gaps?

Nicole Jacobs:

I would have thought the Secretary of State, but I don’t know. You will be the best people to decide those kinds of things.

Q You said that 70% of the services are led by the voluntary sector. How do you compel them to fill the gaps?

Nicole Jacobs:

Of the services that domestic abuse victims access, 70% are community-based services. Having worked at them, I can say that you do not need to compel them to fill the gaps. They exist only to provide those services, and they desperately want to provide more. They will engage with absolutely any process that would help fill gaps for the people they are working with.

Q So if there is a dearth in Redditch, you would expect an organisation from, say, Peterborough to go and fill that gap?

Nicole Jacobs:

I would expect there to be a meaningful assessment at the local level—a joint strategic needs assessment—where the potential funders come together alongside service providers and experts in their area and think very critically about what opportunities they have. That will not be totally precise, because some of it would depend on bidding, so they would have to decide together.

Q How could the Bill support migrant victims and survivors better?

Nicole Jacobs:

The Bill could open recourse to public funds to all survivors. It could also create a firewall between the police and immigration enforcement so that people who are desperately needing protection would not fear calling or talking to services because of negative repercussions. They would just know that they would be made safe. They would have safety before status.

Thank you.

I am afraid that that brings us to the end of the time allotted for the Committee to ask questions. I thank the witness, on behalf of the Committee, for giving evidence this morning.