Policy paper

Explanatory notes

Published 25 June 2026

Applies to England and Wales

What these notes do 

These Explanatory Notes relate to the Conversion Practices Bill as published in draft on 25 June 2026 (Bill CP 1604).

These Explanatory Notes have been provided by the Office for Equality and Opportunity in order to assist the reader of the draft Bill and to help inform debate on it. They do not form part of the draft Conversion Practices Bill and have not been endorsed by Parliament.

These Explanatory Notes explain what each part of the draft Bill will mean in practice; provide background information on the development of policy; and provide additional information on how the draft Bill will affect existing legislation in this area. 

These Explanatory Notes are best read alongside the Bill. They are not, and are not intended to be, a comprehensive description of the draft Conversion Practices Bill.

Overview of the draft Bill

1 In July 2024 the Government was elected with a manifesto commitment to deliver a trans-inclusive ban on conversion practices. 

2 The Government reiterated in the King’s Speech 2026 the intention to publish a draft Bill for pre-legislative scrutiny to fill the gaps in criminal law to target conversion practices.

3 The purpose of this draft Bill is to: (i) create three new offences in relation to the carrying out of abusive conversion practices on individuals and (ii) to make provision for conversion practice protection orders. 

4 Clause 1 sets out the meaning of a ‘conversion practice’ and related terms and provides clarity on what conduct meets the criminal threshold for an ‘abusive conversion practice’. This clause outlines the scope of protection, defining  ‘sexual orientation’, and ‘transgender identity’, for the purposes of the draft Bill. This clause also specifies that certain health care services are outside the scope of the Bill.

5 Clause 2 creates an offence of carrying out an abusive conversion practice on an individual which causes serious harm, alarm or distress, which has a substantial adverse effect on their usual day-to-day activities.

6 Clause 3 creates an offence of encouraging or assisting an abusive conversion practice performed outside England and Wales.

7 Clause 4 introduces a new civil protection order regime - conversion practice protection orders - which are further provided for in the Schedule.

8 Clause 5 provides for offences by corporate and unincorporated bodies.

9 Clause 6 sets out the Act’s short title and territorial application, and makes provision for commencement two months after the day on which the Act is passed.

10 The Schedule sets out the detail of how the new conversion practice protection orders will work, makes a consequential amendment to the Senior Courts Act 1981 to bring this Act within the remit of the Family Division of the High Court, and sets out the interpretation of the Schedule .

Policy background

11 A conversion practice is an act that is carried out with the intention of causing an individual to have or not to have, or to believe that they have or do not have, a sexual orientation or transgender identity. There is substantial evidence that conversion practices cause harm. This draft Bill sets out provisions to prevent and criminalise abusive and harmful conversion practices.

12 A wide range of acts can constitute a conversion practice. For instance, they can range from physical acts such as beating a person in an attempt to change their sexual orientation or transgender identity, to abusive psychological abuse which degrades or manipulates the individual  to  coercive control over the individual’s everyday movements and finances. 

13 Research indicates that conversion practices are associated with a wide range of self-reported mental, physical, and economic harms, including depression, suicidal ideation, and  severe psychological distress.

14 The Government is bringing forward a draft Bill that is balanced and targeted, so as not to inhibit legitimate healthcare and the range of broader support that those exploring their sexual orientation or transgender identity might seek or receive. It is also not intended to interfere with people’s right to religious belief and expression.

15 The draft Bill is being published for pre-legislative scrutiny and it is the Government’s understanding that this will be by a joint committee of both Houses. The Government will closely consider the views and recommendations of the committee.

Legislative protections against conversion practices

16 The draft Conversion Practices Bill defines conversion practices as any conduct which has the intention to cause an individual to have, or not to have, a sexual orientation or transgender identity. It also includes conduct that intends to make an individual believe that they have, or do not have, a sexual orientation or transgender identity. While the evidence shows these practices are most often targeted at LGBT+ people, it protects anyone who is subjected to conduct which is carried out with the intention of causing them to have, or not to have - or causing them to believe they have or do not have - a sexual orientation or transgender identity (as defined within the draft Bill). 

17 The definition applies whether the person’s intent was to cause an individual to have or not have, or to or believe they have or do not have, a sexual orientation or transgender identity. This applies whether it is related to an individual’s actual sexual orientation or transgender identity, or a perceived sexual orientation or transgender identity. This means that it does not matter if the person carrying out the conversion practice was mistaken as to the individual’s sexual orientation or transgender identity.

18 The Bill introduces a criminal offence that may be committed if a person carries out an “abusive conversion practice”. What constitutes abuse for these purposes is for the court to decide on the facts of the case, but the draft Bill references particular types of conduct which the court may wish to have regard to when considering this, drawing from other areas of abuse across the criminal framework. The conduct must also cause the individual serious harm, alarm or distress, which has a substantial adverse effect on their usual day-to-day activities. This offence is triable either way, meaning it can be heard in the Magistrates Court or the Crown Court. On conviction on indictment, a person is liable to imprisonment for a term not exceeding 5 years and/or a fine.

19 The draft Bill also introduces an offence which prohibits a UK national/resident from encouraging or assisting, from within England and Wales, an abusive conversion practice performed on a UK national/resident outside England and Wales. This seeks to deter and punish a UK national/resident from encouraging or assisting an abusive conversion practice outside England and Wales.

20 The draft Conversion Practices Bill provides for civil interventions in the form of conversion practices protection orders (CPPOs). These are civil orders by which the family or criminal court is able to protect individuals from undergoing abusive conversion practices. The court is able to impose whatever conditions are considered appropriate in the context of a particular case. Breach of a CPPO is a criminal offence.

21 The draft Bill also extends the scope of the offences to include bodies corporate and unincorporated bodies. This is to bring defined senior officials in companies and organisations which carry out abusive conversion practices within scope for prosecution. 

Legal background

22 The UK has a robust legal framework which criminalises a range of abusive acts which cause harm, with many violent acts done in the name of changing a person’s sexual orientation or transgender identity already prohibited by existing criminal offences. However, this is not the case for all conversion practices, particularly those which consist of verbal or non-violent physical acts. For example - the offence of controlling coercive behaviour does not cover individuals not personally connected; harassment offences require a course of conduct and cannot be committed in a private dwelling; communications offences require indecent pictures or offensive language; online safety offences involve threatening or false communication. Not all conversion practices include these elements.

23 This draft legislation is intended to provide protection in respect of any conduct which is within the definition of abusive conversion practices.

24 The definitions of sexual orientation and transgender identity in the draft Bill are derived and adapted from existing legislation, in particular the Equality Act 2010 and the Sentencing Act 2020.

Territorial extent and application

25 “Extent” refers to the legal jurisdictions in which the draft Bill forms a formal part of the law.  Clause 6(2) explicitly sets out the territorial extent of the draft Bill, stating that it extends to England and Wales only. The Government will continue to engage with the Devolved Governments on the possibility of the legislation extending to other parts of the United Kingdom in parallel with the pre-legislative scrutiny process.

Commentary on provisions of the draft Bill 

Clause 1: Meaning of “conversion practice” and related terms

26 Subsection (1) explains that the definition of “conversion practice” and related terms set out within Clause 1 apply for the purposes of the draft Bill.

27 Subsection (2) establishes the definition of a “conversion practice”. It specifies that a conversion practice is any conduct undertaken with the intention either of causing an individual to have or not have a sexual orientation or transgender identity, or of making them believe that they have or do not have a sexual orientation or transgender identity. 

28 The definition applies where the person carrying out the conversion practice had a particular outcome in mind, for example, where the person intended to cause an individual to have or not have a particular sexual orientation. It also applies where the person did not have a particular outcome in mind. That means it applies where, for example, an individual identifies as a lesbian and a person intended to ensure they did not identify that way, although they did not intend to make them believe they had another specific sexual orientation such as heterosexual or bisexual. 

29 The definition also includes conduct that was intended to make an individual believe they have or do not have a sexual orientation or transgender identity, even if the person did not intend to cause the individual to in actual fact have or not have a sexual orientation or transgender identity. This also means that it does not matter whether the person carrying out the conversion practice believed their act would in fact cause a person to have or not have (or believe they have or do not have) a sexual orientation or transgender identity. It also does not matter if the person carrying out the conversion practice is mistaken as to an individual’s actual sexual orientation or transgender identity.

30 The reference to causing an individual to have or not have a sexual orientation means that these provisions also include asexual people. A “sexual orientation” for the purposes of the draft Bill means those who are attracted to the same sex, the opposite sex or both sexes. Therefore causing someone to be or not to be attracted to the same sex, the opposite sex or both sexes, has the effect of bringing asexual people within the scope of the draft Bill, if they are subjected to conduct aimed at causing them to be, or causing them to believe they are, attracted to persons of the same sex, the opposite sex or both sexes.  This does not alter the definition of ‘sexual orientation’ in section 12(1) of the Equality Act 2010. 

31 Subsection (3) relates to the provision of health care services. It states that, unless a healthcare provider acts in a way that falls far below the standards of care that might reasonably be expected of a person in their position, any conduct provided in the course of a health care service is excluded from the definition of conversion practice at Clause 1(2).   This clarifies that the provision of health care services is considered to be outside the scope of the draft Bill, unless the  provider does something which falls far below the standards of care that might reasonably be expected of a person in their position. This is equivalent to a threshold of gross negligence.

32 Healthcare services have the same meaning as in section 135 of the Health and Care Act 2022, and the provision will include people working in all public and private, regulated and non-regulated sectors.

33 Subsections (4), (5) and (6)  establish the grounds on which a conversion practice would be considered abusive, as the offences set out in Clauses 2 and 3 apply only to abusive conversion practices. 

34 Subsection (5) states that it is up to the court to decide whether a conversion practice is abusive taking into account all the facts of the case, including the nature of the conduct in question. 

35 Subsection (6)  provides a non-exhaustive list of matters the court should take into consideration in assessing whether conduct in question is “abusive” for the purposes of the draft Bill. The list of considerations is drawn from the wider criminal law framework on abuse. These include whether the conduct involves:

• (a) Words or behaviour of a sexual nature: This could include aversion therapy using pornography, or “corrective” sexual assault;
• (b) Violent or threatening words or behaviour: This could include physical threats, or use of electroshock treatment;
• (c) Controlling words or behaviour: This could include  words or behaviour designed to make an individual subordinate and/or dependent; 
• (d) Coercive words or behaviour: This could include  humiliation and intimidation or other abuse that is used to harm, punish or frighten an individual;
• (e) Use of economic pressure: This could include behaviour that severely limits an individual’s ability to earn, manage, or use their own money and property, or prevents them from accessing essential goods and services (like food or healthcare); and
• (f) Use of psychological or emotional pressure: This could include  behaviour designed to  manipulate or humiliate the individual.

36 Subsection (7) defines the term “sexual orientation” by reference to section 12(1) of the Equality Act 2010, which defines this as “a person’s sexual orientation towards (a) persons of the same sex, (b) persons of the opposite sex, or (c) persons of either sex”. Therefore “sexual orientation” for the purposes of the draft Bill covers those who are attracted to the same sex, the opposite sex or both sexes: as stated above, causing someone to be or not to be attracted to the same sex, the opposite sex or both sexes, has the effect of bringing asexual people within the scope of the draft Bill, in relevant cases. 

37 Subsection (8) defines the term “transgender identity” for the purposes of the draft Bill.  This includes an individual who is undergoing, proposing to undergo or having undergone a process or part of a process of gender reassignment, is transsexual^{[footnote 1]}, or considers themselves to be neither male nor female, or not solely male or female. 

38 This wording draws on the existing statutory provisions relating to ‘transgender identity’ in the Sentencing Act 2020 which in turn relies on the definition of the protected characteristic of ‘gender reassignment’ in the Equality Act 2010. The inclusion of the wording at subsection (8)(c) clarifies that, for the purposes of this Bill, these provisions extend protection to those who identify as non-binary people, defined in the draft Bill as those who identify as neither male nor female, or not solely male or female. This does not amend the meaning of transgender identity within section 66 of the Sentencing Act 2020 or the definition of Gender Reassignment in section 7 of the Equality Act 2010.

39 Subsection (9) defines the term “health care services”. This has the same meaning as in section 135 of the Health and Care Act 2022, and includes (i) public sector or private sector healthcare workers, (ii) regulated or unregulated professionals and (iii) anyone working in a health care setting (eg. admin staff acting under the direction of medical professionals).

Clause 2: Offence of performing an abusive conversion practice

40 Subsection (1) creates a criminal offence under the draft Bill. It states that a person commits an offence if they perform a conversion practice (as defined in Clause 1(2)) which amounts to an abuse (as defined in clauses 1(6), (7) and (8)) which causes either:

• (a) serious harm to the victim’s physical or mental health, or
• (b) serious alarm or distress to the individual which has a substantial adverse effect on their usual day-to-day activities.

41 Subsection (1)(a) captures harm which is comparable to the degree of harm required for actual bodily harm. This  harm does not need to be permanent but must be more than transient and trifling. Serious harm to mental health would be equivalent to psychiatric injury, so would, for example, include PTSD or clinical depression.

42 Subsection (1)(b) captures serious alarm or distress which adversely impacts an individual’s ability to live their everyday life. An adverse impact on a person’s ability to live their everyday life could include social isolation, a noticeable decline in physical or mental health that lead to self-harm, an inability to work, and an inability to care for oneself. This is comparable to the  threshold set out in the offence of controlling or coercive behaviour, provided for in section 76 of the Serious Crime Act 2015.

43 Subsection (2) establishes that this offence is triable either-way and, on conviction on indictment, a person is liable to imprisonment for a term not exceeding 5 years and/or a fine.

Clause 3: Offence of encouraging or assisting an abusive conversion practice performed outside England and Wales

44 Subsection (1) creates a new criminal offence. It makes it unlawful for a UK national or resident to engage in conduct, within England and Wales, which is capable of and  intended to encourage or assist an abusive conversion practice on a UK national or resident to take place outside England and Wales, where that abusive conversion practice is likely to cause serious harm to the victim’s physical or mental health, or serious alarm or distress to the individual which has a substantial adverse effect on their usual day-to-day activities.

45 Subsection (2) provides that the person must directly intend to encourage or assist an abusive conversion practice which is likely to cause harm, alarm or distress to the individual to be within the scope of the offence set out in subsection (1). It is not sufficient that it was merely a foreseeable consequence of their actions.

46 Subsection (3) specifies that the subsection (1) offence can be committed regardless of whether the intended abusive conversion practice actually took place. 

47 Subsections (4) and (5) define a “qualifying individual” entitled to this protection as any person who is a United Kingdom national or habitually resident in the UK. It incorporates all major statutory definitions of British nationality under the British Nationality Act 1981.

48 Subsection (6) establishes that this offence is triable either-way and, on conviction on indictment, a person is liable to imprisonment for a term not exceeding 5 years and/or a fine. 

Clause 4: Conversion practice protection orders

49 Clause 4  introduces “conversion practice protection orders” which are provided for in the Schedule to this draft Bill.

Clause 5: Offences by bodies corporate and unincorporated bodies

50 Subsection (1) makes standard provision for the criminal liability of certain officers of a body listed in subsection (3) where the body has committed an offence under the Bill. 

51 Subsection (2) makes specific provision so that where a corporate or unincorporated body commits an offence under this draft Bill, any senior officer who authorized it, permitted it, took part in it, or failed to take reasonable steps to stop it may also be liable.

52 Subsection (3) clarifies the bodies and relevant officers that could be liable for committing a conversion practices offence. These are:

Organisation type	Who is held personally responsible (“Relevant Officer”)
A Company	Directors, managers, secretaries, or similar senior officers.
A Partnership	Any of the business partners.
An Organization managed by a Board (e.g., certain charities or trusts)	Members of that governing board or committee.
An Organization managed by its own members	The individual members themselves.

Clause 6: Short title, extent and commencement 

53 Subsection (1) provides the formal citation for the legislation: the Conversion Practices Act 2026.

54 Subsection (2) restricts the territorial extent of the Bill to England and Wales.

55 Subsection (3) enacts a standard two-month period for implementation from the date the draft Bill becomes an Act, meaning the provisions will take effect two months after Royal Assent.

Schedule: Conversion practice protection orders

Power to make conversion practice protection orders  

56 Paragraph 1 gives the court the power to issue a “conversion practice protection order” for two reasons:

• (a) Prevention: To protect an individual who is at risk of being subjected to an abusive conversion practice as defined in Clauses 1 and 2 of this draft Bill.
• (b) Ongoing Protection: To protect an individual who has already been, or is currently, a victim of an abusive conversion practice as defined in Clauses 1 and 2 of this draft Bill.

57 Paragraph 1(2) explains that when a court is deciding whether to make an order, it must look at all the circumstances of the case, including the need to secure the health, safety, and well-being of the individual who needs protection. 

58 Paragraph 1(3) provides for the court to have discretion in determining what terms are contained within a protection order in order to protect the safety of the individual at risk of, or already subjected to, abusive conversion practices; examples include, but are not limited to, imposing particular prohibitions, restrictions and requirements.

59 Paragraph 1(4) clarifies that a conversion practice protection order could involve restrictions to prevent a UK national or resident from engaging in acts, whilst in England and Wales, to encourage or assist the commission of an abusive conversion practice outside England and Wales.

60 Paragraph 1(5) requires that an order specifies the period for which it will be in force, meaning that it must be time limited and cannot be open-ended.

Applications and other occasions for making orders 

61 Paragraph 2 specifies how a conversion practice protection order can be applied for or made.

62 Paragraph 2(1) sets out that a court may make a conversion practice protection order:

• (a) after an application is made to it by a specific person or body; or
• (b) without an application having been made, during ongoing legal proceedings (if the conditions of paragraph 2(5), as set out below, are met).

63 Paragraph 2(2)  lists three categories of person who can make an application for a conversion practice protection order without requiring the permission of the court to do so. These are: 

• (a) the individual who is to be protected from abusive conversion practices; 
• (b) a chief officer of police (as defined in paragraph 2(6)); or
• (c) a local authority (as defined in paragraph 2(6)).

64 Paragraph 2(3) specifies that it is also possible for persons not listed in sub-paragraph 2 to make an application to the court for a conversion practice protection order if they are given permission to do so by the court.

65 Paragraph 2(4) sets out that, in deciding whether to grant such leave the court must have regard to “all the circumstances” including, but not limited to, the applicant’s connection to the individual that needs protecting, and/or applicant’s knowledge of the circumstances of that individual. 

66 Paragraph 2(5) specifies the circumstances in which a court can choose to make an order without receiving an application asking it to do so:

• (a) where there are existing family proceedings before the family court or the Family Division of the High Court. 
• (b) where the court considers that a protection order should be made to protect an individual. That individual does not need to be involved in the proceedings under consideration. 
• (c) where the person receiving the order (the respondent) is a party to the current proceedings.

67 This means that, for instance, if a court is already hearing a “family proceeding” (such as a case regarding child arrangements or divorce proceedings) and evidence emerges that an individual is at risk of an abusive conversion practice, the court can issue a conversion practice protection order without a separate application being made. 

68 Paragraph 2(6) provides definitions for “chief officer of police”, “family proceedings” and “local authority”.

Power to make order in criminal proceedings  

69 Paragraph 3 gives the court the power to make a conversion practice protection order during criminal proceedings, in England and Wales, without requiring an application.

70 This applies in circumstances where the court believes that a protection order should be made to protect an individual, whether or not that individual is also the victim in the proceedings currently before the court, and the respondent (meaning the person who would be subject to the protection order) is a defendant in the criminal proceedings before the court.

71 Paragraph 3 applies in respect of both the offences set out in Clause 2 and Clause 3 of this draft Bill.

Orders without notice  

72 Paragraph 4(1) provides for the court to make orders without notice, when it is just and convenient to do so. This will likely be cases where the court believes there is a particularly urgent need to issue a protection order.

73 Paragraph 4(2) states that the court must consider all the circumstances before deciding to grant a conversion practice protection order without notice, including:

• (a) the risk to the individual of being subjected to an abusive conversion practice offence if the order is not put in place immediately;
• (b) whether the applicant is likely to be deterred or  prevented from pursuing an application if an order is not made immediately;
• (c) whether there is reason to believe that the respondent knows about the case but is deliberately trying to avoid being handed the court papers (evading service), and where waiting to use alternative methods to deliver the papers (substituted service) will cause serious prejudice to the individual to be protected or to the applicant.

74 Paragraph 4(3) and 4(4) set out the respondent’s right when an order is made without notice. The court must provide an opportunity for them to make representations as soon as just and convenient, at a hearing for which proper notice has been given to all the parties involved, in compliance with the usual rules of the court.

Variation and discharge of orders  

75 Paragraph 5(1) establishes who can apply to the court to have a conversion practice protection order varied or discharged, being:

• (a) Any party to the original proceedings: This includes the person who originally applied for the order and the respondent. If the protection order was issued as part of a criminal trial, both the prosecution and the defendant have the right to apply.
• (b) The protected individual: if a third party (such as the police or a local authority) originally applied for the order on the individual’s behalf, the individual themselves can still independently ask the court to change or end it.
• (c) Any person affected by the order: this captures third parties who might not have been involved in the original court case but are impacted by the order’s conditions (for example, a social worker who is supporting the individual protected by the order).

76 Paragraph 5(2) gives the court the power to vary or discharge a conversion practice protection order, without an application to vary or discharge the order being made. 

77 Paragraph 5(3) sets out that orders made without notice may also be varied or discharged by the court without notice, for the same reasons and subject to the same conditions as in paragraph 4.

Appeals

78 Paragraph 6(1) and 6(2) make it clear who has the right to appeal a court’s decision to apply a conversion practice protection order. The phrase “to the extent that it would not otherwise be so appealable” provides a right to appeal under this draft Bill even if standard court procedural rules do not explicitly cover it; the phrase is repeated in paragraphs 6(3) and 6(4) with the same intention and meaning. An appeal may be made by:

• (a) the individual who the conversion practice protection order has been made to protect;
• (b) the applicant for the conversion practice protection order; and
• (c) the person against whom the conversion practice protection order was made.

79 Paragraph 6(3) provides that a person who has had a conversion practice protection order made against them without an application has a right to appeal against the making of that order. This includes orders made by a court’s own initiative during other family proceedings (under paragraph 2(1)(b)), or emergency orders made without prior notice (under paragraph 4). 

80 Paragraph 6(4) and 6(5) outline who can appeal a court’s decision to vary (change) or discharge (end) an existing conversion practice protection order under paragraph 5  of this Schedule. They include:

• (a) any party to the proceedings for the order, including the applicant and the respondent, as well as the prosecution or defendant if the order arose during criminal court proceedings.
• (b) the protected individual, even if they were not a party to the initial application (for instance, if the police applied on their behalf), the individual retains a right to appeal any changes made to the order that was made to  protect them.

81 Paragraph 6(6) explains which courts will hear the appeal:

• (a) If the decision was made by a Magistrates’ Court, the appeal goes to the Crown Court.
• (b) If the decision was made by the Crown Court, the appeal goes to the Court of Appeal.

82 It also notes that the powers these higher courts have when deciding an appeal are contained in paragraph 7.

83 Paragraph 6(7) provides that, for appeals originating in the Family Court or the High Court, where an affected person (such as the protected individual or a third party) was not a party to the original proceedings, they are treated as a party for the purposes of the appeal.

84 Paragraph 6(8) sets out additional existing statutory appeal provisions that apply to family and criminal proceedings, which may also apply.

Further provision about appeals

85 Paragraphs 7(1) and 7(2) set out the powers of the Crown Court and Court of Appeal when reviewing a decision that is being appealed.  For instance, they can:

• (a) Confirm, vary, or revoke the conversion practice protection order.
• (b) Refer the matter back to the court that made the decision that was appealed, with a direction to the lower court to reconsider and make a new decision.
• (c) Make any order the lower court could have made, for example issue a conversion practice protection order and/or set its conditions themselves.
• (d) Make any incidental or consequential orders that appear to be just.

Arrest under warrant 

86 Paragraph 8 of the Schedule sets out when an arrest warrant can be issued in relation to a conversion practice protection order.

87 Paragraph 8(1) allows an interested party (as defined in paragraph 8(3)) to apply to a judge for an arrest warrant if they believe the person bound by the conversion practice protection order has not followed the requirements of the order, or is otherwise in contempt of court in relation to the order.

88 Paragraph 8(2) establishes that a judge can only issue a warrant if both of the following conditions are met:

• (a) The application is substantiated under oath. 
• (b) The judge has reasonable grounds to believe the order has been breached or that the person is otherwise in contempt of court in respect of the order.

89 Paragraph 8(3) defines an “interested party”  for these purposes as including:

• (a) The individual protected by the order.
• (b) The original applicant i.e. if a third party like the police or a local council applied for a protection order to be made.
• (c) Anyone else given leave of court, for example a support worker, lawyer, or family member.

Offence of breaching order  

90 Paragraph 9(1) makes it a criminal offence to fail to comply with a conversion practice protection order, where the person does not have a “reasonable excuse” for doing so. 

91 Paragraph 9(2) provides that a person can only be found guilty of an offence for failing to comply with a protection order, if they were aware of the order at the time of the breach.

92 Paragraphs 9(3) and 9(4) establish that a breach of a conversion practice protection order can be prosecuted as  a criminal offence, or as contempt of court, but not both.

93 Paragraph 9(5) sets this offence is triable either way and, on conviction on indictment, a person is liable to imprisonment for a term not exceeding 2 years and/or a fine.

Contempt Proceedings 

94 Paragraph 10 allows the court to exercise its powers in relation to contempt of court when considering a breach of a conversion practice protection order. 

Consequential amendment 

95 Paragraph 11 amends paragraph 3 of Schedule 1 to the Senior Courts Act 1981, to add all civil proceedings related to these new conversion practice protection orders under the Schedule to the asset list of the Family Division of the High Court. This ensures sensitive cases can be directed to specialist judges who routinely handle vulnerable individuals and protective family orders.

Interpretation  

96 Paragraph 12 defines key terms used in the Schedule.

Financial implications of the draft Bill

97 The estimated 10-year Net Present Social Value (NPSV) associated with Option 1 (legislative and non-legislative measures) is £724 million. The estimated 10-year present value benefit of this option is £783 million and reflects a monetised estimate of the reduction in the number of people experiencing depression and reduced quality of life as a result of conversion practices. Total estimated 10-year present value costs of this option are £59.6 million, comprising a £45.8 million cost to the public sector and a £13.6 million cost to the private sector.  These costs are associated with the time required for relevant organisations to familiarise themselves with this legislation, and will occur in the first year after implementation. Impacts on the wider justice system are being assessed with the Ministry of Justice and will be included in future iterations of the Impact Assessment. There are also some uncertainties in the calculations, which are noted in the Impact Assessment. Further details of the estimated costs and benefits are set out in the Impact Assessment which will be published alongside the draft Bill.

Parliamentary approval for financial costs or for charges imposed

98 This section is not required at this stage, this will be needed when the explanatory notes are prepared for the final Bill when it is introduced.

Compatibility with the European Convention on Human Rights

99 The Government considers that the draft Bill is compatible with the European Convention on Human Rights.

Statement under the Environment Act 2021

100 The Government is of the view that the draft Bill does not contain provision which, if enacted, would be environmental law for the purposes of section 20 of the Environment Act 2021. Accordingly, no statement under that section has been made.

Statement under the European Union (Withdrawal) Act 2018 

101 The Government is of the view that the draft Bill does not contain provision which, if enacted, would affect trade between Northern Ireland and the rest of the United Kingdom. Accordingly, no statement under section 13C of the European (Withdrawal) Act 2018 has been made.

Related documents

102 The following documents are relevant to the draft  and can be read at the stated locations:

• Conversion Practices Bill Economic Impact Assessment
• Conversion Practices Bill Equality Impact Assessment

Annex A - Territorial extent and application in the United Kingdom

Provision	England Extends to E & W and applies to England?	Wales Extends to E & W and applies to Wales?	Wales Legislative Consent Motion process engaged?	Scotland Extends and applies to Scotland?	Scotland Legislative Consent Motion process engaged?	Northern Ireland Extends and applies to Northern Ireland?	Northern Ireland Legislative Consent Motion process engaged?
Clause 1	Yes	Yes	Yes	No	No	No	No
Clause 2	Yes	Yes	Yes	No	No	No	No
Clause 3	Yes	Yes	Yes	No	No	No	No
Clause 4	Yes	Yes	No	No	No	No	No
Clause 5	Yes	Yes	Yes	No	No	No	No
Clause 6	Yes	Yes	Yes	No	No	No	No
Schedule	Yes	Yes	No	No	No	No	No

Subject matter and legislative competence of devolved legislatures

103 The draft Bill extends and applies to England and Wales (clause 6(1)). The creation of new  offences against the person (or any amendment of such) that are triable only on indictment is outside the legislative competence of the Senedd Cymru (Welsh Parliament) (see paragraph 4(2) of Schedule 7B to the Government of Wales Act 2006). The creation of offences against the person that are triable either-way and do not relate to any of the reserved matters listed in Schedule 7A to GOWA 2006 (as is the case in the draft Bill), is within the Senedd’s legislative competence. 

The draft Bill does not extend to Scotland or to Northern Ireland.

DRAFT CONVERSION PRACTICES BILL

EXPLANATORY NOTES

These Explanatory Notes relate to the Conversion Practices Bill as published in draft on 25 June 2026 (Bill CP 1604). 

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Ordered by CABINET OFFICE to be printed, 25 June 2026

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Bill CP 1604

1. The Equality Act 2010 uses the term ‘transsexual’ for individuals who have the protected characteristic of gender reassignment and the same term is used in the Sentencing Act 2020. We recognise that many people consider this term outdated. We are using it for consistency in the draft Bill but not in accompanying documentation. See also www.equalityhumanrights.com/en/advice-and-guidance/gender-reassignment-discrimination  ↩