National Strategy on Domestic, Sexual and Gender-based Violence 2010-2014 Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [] strategy will be built on the foundation of these collaborative efforts. I would like to thank toI likethank would efforts. domestic, to of collaborative these will be on built the foundation strategy effectively respond and prevent to society. better a constructively create work can to we continue who those together, all Working Ireland. in violence gender-based and sexual It is the aim of this strategy that by the end of 2014 in Ireland all incidences of domestic, sexual sexual domestic, of society. to incidences all Ireland in unacceptable 2014 be of end together will the by and victims that for strategy recognised, this safety of and aim the is It increased understood be be will will there violence 2014 by that gender-based and perpetrators. of ensure to aims accountability further increased and strategy The provision service of level improved an with and prevention of system current the improve to help will strategy this of implementation The implementation Successful and at in home our community. lives safer and ensure response, actions tothe involved bybodies all commitment and co-operation on effective depend will set out within this I document. all commend within and those individuals organisations of this meaningful a to the development is it – contributed who have sectors document this and the non-State the State both than more much is work their from outcome The strategy. of this Theimplementation of expertise. sharing and thinking’ ‘joined-up of demonstration to achieve this, Cosc was given a remit to address domestic, sexual and gender-based violence violence gender-based and sexual domestic, address to sector. remit a given justice was the Cosc of this, that from achieve to solely than rather perspective cross-government a from form, byhas a CoscThisbeenandstrategy developed any co- achieving is of towards a advance major violence of to my It will contribute intolerant violence. is and sexual gender-based that to domestic, response society a ordinated creating of home. the – objective people for long-term place safest the Department’s be should what in occurs that violence of especially but rather but outlay financial great a for country. this a difficulty during involve timeof economic isnot great published Thebeing strategy do implementation strategy this successful in a included Indeed, actions the co-operation. However, inter-agency and working to approach new a of asa result arises that cost. State the to human burden financial the horrific reduce to the help will to strategy of this addition in violence, gender-based and sexual domestic, prevents and responds effectively to domestic, sexual and gender-based violence. However, However, violence. andsexual gender-based to domestic, effectively and responds prevents of andthe bodies absence guiding an an overall different these between achieving in of lack co-ordination obstacle an be to proved has operate to which within framework a and policy this forall direction foris clear need There a a response. and of prevention system effective involved. agencies and bodies all for all vision for collective a vision and clear activity a provide to and date to co-ordination of lack the correct 2010- to period the aims in violence strategy This gender-based and sexual domestic, on action violence. gender-based government-related and sexual domestic, tackling to committed is Government The 2014. to is task Justice, key of Department the Cosc’s within office asan executive ofcommitment. in2007, Cosc this of establishment The demonstration clear a was sexual Reform, Law domestic, to and response Equality ‘whole-of-government’ co-ordinated well a of order In delivery the ensure community. the in people older and men women, against violence gender-based and Domestic, sexual and gender-based violence are crimes that can occur in all social classes, all ethnic and ethnic all men classes, affect social all crimes in occur These can that crimes background. are physical, violence educational every devastating whole. gender-based a of and have as can sexual people that society for among crimes Domestic, as and well hidden as often cultures are victims and They the for groups people. older and consequences children financial and women, physiological emotional, that a system to deliver working are sectors voluntary and in State the organisations Many Foreword
Minister for Justice, Justice, for Minister Reform Law and Equality Mr Dermot Ahern, TD Ahern, Dermot Mr Preface
Domestic, sexual and gender-based violence are a cruel reality for thousands of people in Ireland. In spite of the valiant and courageous efforts by victims and survivors of this violence, there is a need for society to intervene to prevent this behaviour, to support victims, to provide effective responses both to the victims and to those who perpetrate these crimes.
This strategy is an expression of concern and of action. It has been drafted by Cosc – The National Office for the Prevention of Domestic, Sexual and Gender-based Violence – with the assistance of a broad range of partners across the state and non-governmental sectors. It is the product of deep consideration, vision, energy, courage and trust by many organisations and individuals. The strategy development process was, in itself, an exercise in collaboration towards a common goal. There were many challenges along the way – identification of that common goal, clarification of the role of various parties, and the building of workable structures to deliver the strategy. The key characteristics of the success of this project have been courage and trust. Organisations and individuals were brave enough to concede on long-held positions to realise a common vision which may in the long run produce better results for our society than individual visions could ever achieve. Éimear Fisher It was deeply gratifying to witness organisations, some of which had not been actively involved in this area previously, embrace co-ordinated action, volunteer to lead action and to Executive Director, Cosc suggest even better ways of reaching the vision. Many organisations with a long history of March 2010 action in this area were generous in providing advice, support, and practical assistance based on their valuable experience. This collective work has built a strong foundation of knowledge, commitment, respect and trust on which the strategy’s actions will be delivered.
A special word of thanks must go to the victims and survivors of domestic, sexual and gender-based violence who met with me to explain their experiences and to provide the benefit of their insights into what helped and what hindered their recovery from this horror. Their voices and faces helped to drive the process forward during challenging times and will continue to drive implementation.
The launch of this strategy is not the beginning of action. Action has been taken for many years to address these crimes. The difference is that this is the first statement of national policy on domestic, sexual and gender-based violence, incorporating an evidence-based plan of collective action for the next five years. The plan sets out commitments to be achieved by state bodies and supported by a broad range of non-governmental organisations. The government has established Cosc to co-ordinate this work and to help all those involved to achieve the vision of safer lives at home and in our community. We look forward to working constructively with all our partners to achieve this task.
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t t t t t ng 1 r 1 2 . ng h . . t b s 1 2 3 4 5 s 1 1 2 l g t l s s s t r r 1 2 3 2 2 ...... a . . . . . 6 7 8 9 2 3 3 3 3 3 3 4 4 4 4 2 3 4 5 6 7 8 9 10 11 2 3 4 5 5 5 5 1 1 1 4 4 ...... 2 2 2 2 3 3 3 3 3 3 3 3 3 3 3 3 3 1 1 1 1 1 1 1 1 1 1 2 2 2 2 2 2 2 Chapter 3 3 2 Chapter 2 Executive summary On Part Chapter 1 1 Contents Preface Contents Cont’d
3 .5 ‘Joining it all up’ – gaps and challenges encountered ...... 66 3 .6 Conclusion...... 68 Part TwO tackling the problem more effectively Chapter 4 Primary interventions 4 .1 ntroduction...... 70 4 .2 high-Level Goal 1 ...... 70 4 .2 .1 action 1...... 70 4 .2 .2 action 2...... 72 4 .2 .3 action 3...... 72 4 .3 Conclusion...... 74 Chapter 5 secondary interventions 5 .1 ntroduction...... 76 5 .2 high-Level Goal 2 ...... 76 5 .2 .1 action 4...... 77 5 .2 .2 action 5...... 77 5 .2 .3 action 6...... 78 5 .2 .4 action 7...... 81 5 .2 .5 action 8...... 82 5 .2 .6 action 9...... 83 5 .2 .7 action 10...... 84 5 .2 .8 action 11...... 86 5 .2 .9 action 12...... 87 5 .2 .10 Action 13...... 88 5 .2 .11 Action 14...... 88 5 .2 .12 Action 15...... 89 5 .2 .13 Action 16...... 91 5 .2 .14 Actions 17 and 18...... 92 5 .3 Conclusion...... 92 Chapter 6 Policy and service planning 6 .1 ntroduction...... 94 6 .2 high-Level Goal 3 ...... 94 6 .2 .1 action 19...... 95 6 .2 .2 action 20...... 96 6 .2 .3 action 21...... 97 6 .3 Conclusion...... 98 Chapter 7 strategy implementation and review 7 .1 ntroduction...... 100 7 .2 high-Level Goal 4 ...... 100 7 .3 Conclusion...... 101
Bibliography...... 103 Appendix 1 ...... 107 Appendix 2 ...... 109 Appendix 3 ...... 113
[IV] INTRODUCTION CHAPTER 1 CHAPTER 2 CHAPTER 3 CHAPTER 4 CHAPTER 5 CHAPTER 6 CHAPTER 7 MMARY U S IVE T ECU X E Executive summary
Domestic and sexual violence Introduction often includes the use and abuse of children, as well as economic abuse. Controlling and are not identical... They share This strategy is a statement of Government intimidating behaviour, including threats the sinister element of being priority actions to address domestic, sexual and blaming the victim, are common forms and gender-based violence in Ireland in the of emotional abuse. Older people can hidden crimes, frequently five-year period from early 2010 to the end experience abuse by carers and those in a perpetrated by persons in a of 2014. The Government is concerned position of trust. at the consistent prevalence and the high position of supposed trust level of non-disclosure or non-reporting of Sexual violence refers to assaults that have or complicated by close incidences of domestic, sexual and gender- an explicit sexual content and includes based violence. The strategy sets out a plan a variety of forms including rape, sexual relationships. for ‘whole-of-government’ action for a more assault and sexual harassment. These effective system to prevent these types of forms of sexual violence can be perpetrated violence. Six government departments, their by family members, current and former agencies and up to 100 non-governmental sexual partners, other relatives and friends, organisations (NGOs) are involved in work acquaintances (including colleagues and relevant to the prevention and alleviation of clients), those in a variety of authority abuse. The strategy aims to provide a strong positions, and strangers. The many possible framework for sustainable intervention to combinations of location and relationships prevent and effectively respond to domestic, mean that sexual violence can be in private sexual and gender-based violence. or public locations, and in terms of rape, for example, can include many forms The strategy focuses on action to address – marital rape, familial/incestuous rape, domestic, sexual and gender-based violence acquaintance/date rape, stranger rape, perpetrated against adult men and women, gang rape, custodial rape, and rape as a war including older people. It presents evidence crime. to help understand the complexities of domestic, sexual and gender-based Domestic and sexual violence are not violence and to inform the development identical. Domestic violence may include of responses. It has been drafted by Cosc physical, sexual and emotional abuse. – the National Office for the Prevention Sexual violence often occurs in the domestic of Domestic, Sexual and Gender-based context but may also be committed against Violence – in consultation with a broad a stranger. However, while they are not range of stakeholders in government and identical, the similarities invite parallel, non-governmental organisations. and often identical, preventative and responsive action. They share the sinister Three different dimensions of abuse element of being hidden crimes, frequently characterise domestic violence: physical, perpetrated by persons in a position of sexual and emotional abuse. Behaviours that supposed trust or complicated by close commonly occur in situations of domestic relationships. Implementing action to violence include various forms of physical tackle these crimes must take due account violence such as kicking, punching, slapping, of the circumstances where the perpetrator smothering or choking, biting, throwing, is known, or is a stranger to the victim. The and threatening with an object. The use of strategy focuses on domestic and sexual isolation can be a key device, for example violence, recognising that they are forms of where the abuser restricts communication gender-based violence, but takes account between the victim-survivor and those who of the similarities and differences between are close to the person. Domestic violence these forms of abuse.
[] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 ] [ Referring) (Reporting, Secondary Responding, Intervention Policy outcome oversight (Co-ordinated impact assessment and evidence base) (Co-ordinated Primary oals (Prevention, (Prevention, Intervention G Understanding) Recognising and evel evel To deliver an effective and consistent consistent and effective an deliver To To ensure greater effectiveness of To ensure efficient and effective To promote a culture of prevention of prevention a culture promote To L
2 affected those to service 3 planning service and policy 4 strategy. of the implementation 1 and recognition through ofunderstanding sexual domestic, and increased violence gender-based igh- High-Level Goal One deals with the actions actions the with deals One Goal High-Level to be taken under primary interventions. TheHigh-Level Goals cascade down into detailed ‘on the ground’ activity through activities. and actions objectives, interventions Primary for sustainable intervention to prevent and to prevent intervention for sustainable sexual and torespond domestic, effectively violence. gender-based H are: strategy the of Goals High-Level four The Using Using this objective: overall the achieve to constructed model, the the development of strategy a strong framework is Structured and improved planning Greater recognition and a broader Greater confidence in high-quality Increased safety for victims Increased accountability of the Clearer societal acknowledgment of
» and monitoring to ensure effectiveness. continued » » perpetrator gender-based violence » and consistent services and gender-based violence » understanding of domestic, sexual and » the unacceptability of domestic, sexual trategy model trategy trategy vision trategy
impact impact of the strategy and of our national problems. these to approach With With a reasonable level of evaluation and monitoring and a systematic approach to overall the to assess it will be data, possible making advancements. The key difference is difference key The advancements. making with undertaken and planned is activity that to and a regard impact outcome. conscious firmly based. It is not is It not progressed. is strategy the in enough action that is sector one one or organisation one that enough placing an emphasis on co-ordinated impact impact co-ordinated on emphasis an placing and assessment the of generation evidence on which policy and service planning is S focuses Thefor thischosenmodel strategy while intervention secondary and primary on – Safer lives at home and in our community. our in and home at lives Safer – partnership partnership with an for all foundation relevant services, strong a this deliver will strategy and response of system prevention improved Through the development of this framework of the Through thisdevelopment framework and the departments and State commitment bodies, working in of government The National Strategy vision is that: is vision Strategy National The be: will there Ireland, in 2014 of end the By S Primary interventions are those that aim domestic and sexual violence. Practical Secondary interventions arise to prevent a problem from occurring or, information and guidance material will be when it has taken place, to prevent its developed for third-level institutions and once an incident has occurred recurrence. In the context of domestic student unions in order to inform students and there is a direct role for and sexual violence, primary interventions of the risks of domestic, sexual and gender- are those used to raise awareness, increase based violence, and to provide them with services to deal with a report, understanding and recognition, educate practical information on how and where to to respond, or to refer on for people about the dynamics of the problem get help. and its impact, and equip people to better needs to be met by a more respond to the problem. In the long term, specialised service. incidences of domestic and sexual violence Secondary interventions will be reduced or prevented through raising awareness of the problem and changing High-Level Goal Two deals with second- attitudes. ary interventions. Secondary interventions arise once an incident has occurred and The first action aims to increase recognition there is a direct role for services to deal with and understanding of domestic and sexual a report, to respond, or to refer on for needs violence throughout society as a whole, to be met by a more specialised service. In within high-risk groups and within specific the context of domestic and sexual violence, audiences such as health-care professionals, secondary interventions are mainly the the justice system and other front-line services offered to victims. Secondary staff. Primary interventions also involve interventions therefore range from routine developing and implementing training enquiry in hospital or GP settings which programmes to ensure that front-line aim to facilitate disclosure, to direct service staff and professionals provide an effective provision to victims, such as assistance with response. Further activity under this action accommodation, counselling and medical is to be carried out through the inclusion of attention, to relief provided through the suitable material in the curricula of third- civil and criminal justice process. level courses such as medicine and social science, and through continuing promotion A basic first step in increasing confidence of issues relevant to domestic and sexual in service provision for those affected by violence in training on student care among domestic and sexual violence is making sure school professionals. that information on services is available to victims in user-friendly formats. Action is The final action under this objective is also planned to improve opportunities for targeted at children and young people and disclosure in the health and non-health aims to promote healthy relationships and sectors. develop among young people an intolerance of domestic, sexual and gender-based This section also includes action promoting violence. The activities under this objective high-quality standards in service delivery are aimed at both second- and third-level for victims and perpetrators of domestic and students as well as young people involved sexual violence; action strengthening intra- in youth programmes outside of the school and inter-organisational co-ordination with context such as Youthreach and similar a view to improved service effectiveness and programmes. The Department of Education consistency; and action supporting and and Science will lead work with curriculum enabling collaboration across State agencies support services and Cosc to strengthen and NGOs. Work at regional level will be the emphasis on awareness of issues of further strengthened through support for
[] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 ] [ A A reduction in the prevalence of An increase in the level of and community the in people That
» domestic, sexual and violence gender-based » as and a disclosure reporting, result of improved opportunities for disclosure system response the in confidence and » in service provider organisations are to how respond about informed better to disclosures of sexual domestic, and violence. gender-based eadline indicators indicators eadline A similar review will take place in 2014 to will place review A take similar take full ofaccount the experience of this action. further determine to and strategy H The key headline are: strategy indicators for this Committee Committee has been established and will meet twice yearly. In Cosc by prepared advance be will report a meetings of these on the implementation of actions. the The strategy Oversight Committee will to report progress the General Secretaries of government departments and to Government. the will strategy the of review comprehensive A five-year the through midway out carried be duration of and the a strategy, report will Committee. Oversight the to submitted be
trategy implementation implementation trategy In In order to ensure the effective progress of the strategy a Strategy Oversight to to develop and improve data, including realising the statistical potential of data collected for and administrative research/ policy purposes. better a in be will Ireland data, to approach With an The aim to position effectiveness. evaluate improved is to develop an evidence-based approach to assessing effectiveness of activity and impact. S review and Policy and service planning service and Policy The first and systematic most a of development the fundamental is required action approach to data capture and collation. Thelack of consistent information about domestic by affected of people number the and sexual violence limits on data our Improving ability problem. the to to respond domestic and sexual violence will involve working with the relevant organisations Domestic Violence Perpetrator Programme Programme Perpetrator Violence Domestic Committee, Cosc perpetrator strengthen to plan a implement will inter- and intra- develop improving by programmes and co-ordination co-operation, organisational collection. data and The final actions in address this the area accountability of aim and offenders strengthen to the protection of victims through review ofimprovement legislation on sexual and and violence. any domestic necessary to to the vetting process, further developing policy and provision for risk pre-sentence assessments for sexual violence offenders, and further developing risk management violence sexual convicted for arrangements the ofThrough establishment a offenders. Management of risks posed by perpetrators perpetrators by posed risks of Management is to be tackled through improvements proposals proposals for implementation to improve situation. the violence violence and sexual violence cases, where appropriate. This will include examining recent research with a view to making The strategy includes a to specific minimise action attrition levels in domestic effectiveness and consistency in housing in services of co-location the and responses setting. one-stop-shop a Specific actions are included to improve protection and support for domestic victims and of sexual improvements violence to through counselling, ensuring and in the implementation of this strategy and in implementation the level. local at the the effective functioning of the Regional Advisory Committees which will play an collaboration in developing role important arrangements for convicted sexual violence offenders. violence offenders, and further developing risk management provision for pre-sentence risk assessments for sexual the vetting process, further developing policy and perpetrators is to be tackled through improvements to Management of risks posed by Outline of National Strategy on Domestic, Sexual and Gender-based Violence 2010-2014
Overall Strategic Objective: Key Objectives The development of a strong framework 1 To increase understanding, recog- for sustainable intervention to prevent nition and practical information on and effectively respond to domestic, domestic, sexual and gender-based sexual and gender-based violence violence throughout society in Ireland 2 To increase understanding and recognition of domestic, sexual and Primary interventions gender-based violence in State-sector organisations High-Level Goal 1: 3 To raise awareness among young To promote a culture of prevention people of domestic, sexual and gender- 1 Apart from Actions 6, 8, and 9, all HSE actions and recognition through increased based abuse and indicators are directly taken from the current draft understanding of domestic, sexual and of the HSE policy on domestic violence and sexual gender-based violence violence.
Indicative list of key Progress Implementation Action Activities bodies indicator structure 1 Promote and 1.1 Undertake a range of activities Cosc (Lead) 1.1 (a) Targeted Cosc (with NSC, RAC and develop an including engaging national, local Annual Information NGO participation) understanding and journal media in delivering Programme 2010- and recognition of articles to the general public, and 2014 developed by domestic, sexual to specific audiences (including Q2 2010 and by Q1 and gender-based professionals, vulnerable or high- each year thereafter violence among the risk groups, older people etc), 1.1 (b) Annual general public and » to challenge myths Programmes specific audiences » to confront offending behaviour implemented by end » to increase understanding and of programme year recognition, and » to provide practical information on domestic, sexual and gender-based violence and services available
1.2 Develop guidance on practical Cosc (Lead) 1.2 (a) Guidance and Cosc (with NSC, RAC and steps to increase personal safety dissemination plan NGO participation) for those most at risk from developed by domestic, sexual and gender-based Q4 2010 violence 1.2 (b) Implement plan from Q1 2011 to 2014
1.3 Agree in partnership with the HSE 1.3 Number of groups HSE NGO networks and Cosc a trained by LHO by national awareness training pack Q4 2010 for all community groups and organisations that receive funding from the HSE1
[] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 ] [
Cosc with NSC and NGO participation No specific structure needed Implementation structure HSE Cosc-led training committee and/or service-led committees
or development of suitable training by programmes Q2 2011 training programmes by Q4 2011 trained each year some institutions by end Q2 2011 end Q4 2011 to from Q1 2012 end Q3 2012 end institutions from Q4 2012 trained professionals staff trained by each staff LHO by Q1 2011 training needs identified by Q1 2011 (c) Implementation of (d) Number of staff Number of front-line Number of front-line (a) Justice sector (b) Identification (a) Develop pilots in (b) Implement pilots (c) Review pilots by (d) Extend to other Number of school
2.2 2.2 2.3 2.3 2.3 2.3 2.4 Progress Progress indicator 2.1 2.2 2.2 Courts Service, Legal Aid IYJS Board, Cosc, HSE, OOP, Institutions concerned DES Indicative list of key bodies HSE Cosc (Lead), Garda, Probation, relevant to domestic, sexual and relevant violence in training gender-based among school on student care professionals to include understanding and of domestic, sexual and recognition violence in curricula gender-based including social services and legal studies curricula from agreed existing materials agreed from justice sector needs for all relevant including identification organisations suitable for cross-sectoral of areas training analysis, develop and implement training programmes training packs for all front-line staff staff training packs for all front-line settings, health-care in different Agree and deliver a suite of national Agree Continue to promote issues Continue to promote Work with third-level institutions with third-level Work (a) Conduct an analysis of training (b) In the light of the training needs
2.4 2.3 2.2 2.2 Activities 2.1 domestic, sexual and gender-based the violence across State sector and develop understanding of and recognition Promote Promote Action 2 Indicative list of key Progress Implementation Action Activities bodies indicator structure 3 Embed domestic, 3.1 Develop and implement sustainable DES (Lead), 3.1 (a) Develop enhanced Education committee sexual and gender- second-level educational Curriculum programme content based violence programmes, applying learning support by Q2 2011 content in second- from Cosc research on schools services, 3.1 (b) Number of and third-level programmes and from the Cosc schools/teachers educational experience of programmes provided who have availed of institution action on in this area training in enhanced healthy relationships programme each year
3.2 Develop and implement programme As above 3.2 (a) Develop content As above for young people attending for delivery in Youthreach and similar education Youthreach and programmes similar programmes by Q2 2011 3.2 (b) Number of schools/teachers who have availed of training in enhanced programme each year
3.3 Work with third-level institutions Cosc 3.3 (a) Practical guidance Cosc with NSC and other and student media to increase (Lead), for third-level colleges NGO participation understanding and practical Third-level on risk of domestic, information on domestic, sexual and institutions, sexual and gender- gender-based violence Student based violence and health services available by services Q4 2010 3.3 (b) Number of colleges involved each year
Secondary interventions 5 To promote high standards in service provision High-Level Goal 2: 6 To strengthen intra- and inter- To deliver an effective and consistent organisational co-ordination to service to those affected by domestic and improve service effectiveness and sexual violence consistency 7 To improve protection and support Key Objectives for victims 4 To increase confidence in service 8 To address offending behaviour by provision for those affected by DV perpetrators of domestic and sexual and SV violence
[] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 ] [ 2 HSE Justice and Tripartite Committees Implementation structure No specific structure needed. Cosc to drive
light of review by light of review Q4 2013 to deliver service service deliver to victims to information levels awareness among victims by Q1 2010 agreed received who staff at forms assessment by LHO by training 2010 Q4 completed forms ing sector non-health (including disclosure pilot) suitable 2011 Q4 by developed by Q2 2012 (including number of forms completed) by Q2 2013 and consistent information effectively disseminated by State organisations support strategic NGOs to provided (b) Improved service (b) Improved (a) Assessment form Accessible and Effective (a) (d) Action taken in of Number (b) for Proposals (a) (b) Pilot implemented (c) Pilots reviewed
(c) Number of screen- of Number (c) 5.2 4.2 5.1 5.1 5.1 5.2 5.2 5.2 Progress Progress indicator 4.1 4.2 NGO services HSE Cosc local (Lead), authorities, DEHLG, DES Indicative list of key bodies Cosc (Lead) and all relevant State services Cosc (Lead) and all relevant and education sectors assessment form with domestic use violence questions for routine health-care in different for all staff with specific contexts/environments groups target of domestic to encourage disclosure and sexual violence in relevant sectors including justice, housing, sexual violence provided by State sexual violence provided organisations dissemination of support effective information on domestic and sexual by non- violence services provided State organisations victims of accessible and consistent information on domestic and Agree and implement an Agree Promote effective dissemination to effective Promote Identify and promote best practice Identify and promote Continue to encourage and 5.2 4.2 5.1 Activities 4.1 disclosure of disclosure domestic and sexual violence opportunity is for provided formats on services is available to victims in user-friendly Ensure reasonable reasonable Ensure Ensure information Ensure 5 Action 4 Cosc facilitates inter-agency co-ordination the across justice sector through the Committee; Justice and inter-agency co-ordination State bodiesacross responsible for justice, health and housing policy through a committee known as the Committee. Tripartite 2 Indicative list of key Progress Implementation Action Activities bodies indicator structure 6 Promote clear, high- 6.1 Publish a new edition of the Victims Victims of 6.1 Victims Charter Victims of Crime Office, quality standards Charter and Guide to the Criminal Crime Office published by Q1 2010 Cosc in service delivery Justice System, outlining the (Lead) and for victims and commitments to victims generally, and all relevant perpetrators of victims of sexual, domestic and gender- bodies domestic and based violence in particular, made by sexual violence the eight State criminal justice agencies
6.2 Identify best practice models for Cosc (Lead) 6.2 Information on best No specific structure. service delivery for victims and and all rele- practice models Cosc to drive perpetrators of domestic and vant bodies identified and sexual violence circulated to service providers by Q3 2010 and regularly thereafter
6.3 Encourage improvements to service Cosc (Lead) 6.3 At least 2 best delivery based on consideration of practice models suitable best practice models considered annually
6.4 Identify and promote suitable State Cosc 6.4 Development service responses in relation to (Lead), of intervention domestic and sexual violence for OOP responses for the vulnerable or high-risk groups (including most vulnerable Travellers, people with a disability, older groups by Q4 2011 people, migrants, and young people)
6.5 Work in partnership with the HSE (Lead) 6.5 Number of standards HSE national NGO networks to develop in place in all HSE- standardisation within specialist funded services by domestic violence services Q4 2010
6.6 Implement the recommendations HSE (Lead) 6.6 SATU review report HSE on standardisation of sexual assault implemented by services as set out in the National Q4 2010 (funding Review of SATUs dependencies)
6.7 Ensure that the requirements in HSE 6.7 Child protection policies HSE Children First: National Guidelines in place in all HSE-funded for the Protection and Welfare of services, based on re- Children are being adhered to by all quirements of Children specialist domestic violence services First: National Guidelines for the Protection and Welfare of Children and Duty to Care Q3 2010
[10] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [11] HSE Justice and Tripartite Committees ODPC DJELR HSE HSE Implementation structure
As above (a) Assess extent to to extent Assess (a) protocols (b) Agree further (c) Agree (d) Implement by end (a) Guidance for any (b) Provide Number of children children of Number necessary legislative change domestic violence are are violence domestic up followed referral specific which by required protocols 2010 Q4 end by end in 3 key areas Q4 2011 by required protocols end Q4 2012 2014 developed and disseminated by Q4 2010 guidelines outlined, outlined, guidelines and disseminated service in covered agreements level 2010 Q4 re risk at identified Best practice practice Best
6.10 6.10 7.1 7.1 7.1 7.1 7.2 7.2 Progress Progress indicator 6.8 6.9 HSE Cosc (Lead), HSE, Garda, Courts Service, Probation ODPC DJELR Indicative list of key bodies HSE HSE Ensure the assessment form for for form assessment the Ensure Promote and further develop practices practices develop further and Promote Develop and disseminate guidelines guidelines disseminate and Develop Ensure the assessment form for for form assessment the Ensure Provide guidance on data protection protection data on guidance Provide implications of information sharing sharing information of implications services across regarding children’s welfare children’s regarding referrals inter-agency on protocols and best on based co-operation and practice children at risk will contain key key contain will risk at children violence domestic about questions domestic regarding risk at children questions contains violence on working with children in domestic domestic in children with working on situations violence
7.2 7.1 6.9 6.10 Activities 6.8 multi-agency projects agency co- through ordination perpetrators of domestic and sexual violence (cont’d) quality standards quality standards in service delivery for victims and Promote inter- Promote Promote clear, high- clear, Promote 7 Action 6 Indicative list of key Progress Implementation Action Activities bodies indicator structure 8 Improve 8.1 Promote opportunities for networking, Cosc (Lead) 8.1 (a) Effective meetings No specific structure collaboration and sharing information and best practice of NSC and related necessary information sharing across State agencies committees (ongoing) in relation to service 8.1 (b) Conduct provision annual reviews of collaboration activity at regional/national level
8.2 Regular liaison between Cosc and the Cosc and 8.2 Progress made on No specific structure HSE Assistant National Director for HSE HSE-related domestic necessary Children and Families Social Services and sexual violence and the HSE Assistant National actions Director for Older Person’s Services regarding progress on all HSE-related action on domestic and sexual violence
8.3 Support Regional Advisory Committees HSE 8.3 Effective meetings No specific structure to improve collaboration and the of RAC and related necessary implementation of national policies on committees (ongoing) domestic and sexual violence
8.4 Explore areas of work to identify those Cosc 8.4 (a) Areas of work to be Cosc (with advice from suitable for cross-border co-operation (Lead), identified by Q3 2010 NSC, RAC and NGOs) to address domestic and sexual DFA, HSE, 8.4 (b) Consider setting violence Garda, up projects to take Courts forward suitable areas Service, of work by Q1 2011 Probation Service 9 Ensure reasonable 9.1 Review the availability of counselling HSE 9.1 Review completed by HSE and HSE-funded accessibility to services as part of its work on Q1 2011 services for victims of counselling services standardisation and improved data domestic and sexual for victims of collection within HSE-funded services violence domestic and sexual for victims of domestic and sexual violence violence
9.2 Develop proposals for improvement 9.2 Proposals for improvement developed and implemented by services and the HSE by Q2 2011
[12] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [13] the National Homeless Consultative Committee, as appropriate Cross-Departmental Cross-Departmental on Homelessness, Team in consultation with Implementation structure Cross-Departmental Homelessness, on Team in consultation with the National Homeless Consultative Committee, as appropriate
programme of action action of programme developed Committee, as as Committee, This appropriate. be will guidance by supported relevant on research experience, aspects, practice best and internationally Q4 by developed address to 2010, to: relating matters and need housing application consistent ‘homelessness’ of policies provision of extent emergency of accommodation with 2011 Q4 by consequential to be developed developed be to Cross- the through Team Departmental Homelessness on in Cosc, with the with consultation Homeless National Consultative Evaluation completed completed Evaluation (b) Policy Guidance Guidance Policy (b) (a) Policy guidance guidance Policy (a) 10.1 10.1 of Assessment 1. allocation Housing 2. and Nature 3. 10.2 Progress Progress indicator 10.1 authorities, HSE DEHLG (Lead), Cosc, local Indicative list of key bodies DEHLG (Lead), Cosc, local authorities, HSE to help persons maintain maintain persons help to 3 extent of victim homelessness homelessness victim of extent violence, domestic from arising and approaches evaluate as such initiatives of experiences etc., support, security rooms, safe context Irish in role consider and their new housing tenancies housing new their setting out a clear understanding understanding clear a out setting the and violence domestic of a as housing of importance and preventative homelessness guidance The action. responsive of range the cover also would be to options accommodation implemented and considered covering authorities local by long- and emergency preventative, solutions accommodation term as supports, housing related with necessary, authorities on their housing remit remit housing their on authorities violence, domestic to relation in In the context of minimising the the minimising of context the In Develop policy guidance for local local for guidance policy Develop 10.2 10.2 Activities 10.1 effectiveness and effectiveness consistency in housing responses Ensure Ensure Action 10 Supports to help the successful transition from homelessness to living in mainstream housing, tapering offin line with this progression. 3 Indicative list of key Progress Implementation Action Activities bodies indicator structure 11 Examine a one- 11.1 Develop proposals for multi-agency Cosc (Lead), 11.1 Proposals developed Implementation structure stop-shop option one-stop shop for victims of domestic HSE, Garda, by Q4 2010 to be part of proposals for for greater and sexual violence FSA, one-stop shop accessibility to DCRGA services for victims 11.2 Implement pilot of one-stop shop 11.2 Pilot implemented by of domestic and Q3 2011 sexual violence 11.3 Review pilot and implement outcome 11.3 (a) Pilot reviewed by of review Q3 2012 11.3 (b) Proposals revised and implemented by Q3 2013 12 Minimise attrition in 12.1 Develop a greater understanding of Cosc (Lead), 12.1 Justice Committee Justice Committee domestic and sexual the extent and nature of attrition in Garda, to consider attrition violence cases, domestic and sexual violence cases Courts research and to make where appropriate Service, proposals to Cosc by DJELR Q4 2010
12.2 Develop proposals to minimise Cosc (Lead), 12.2 Proposals considered Justice Committee attrition in domestic and sexual Garda, and implemented violence cases, where appropriate, Courts on a phased basis if including an examination of the Service, necessary feasibility of pre-trial hearings in DJELR sexual violence cases 13 Use vetting 13.1 Improve legislative provisions on DHC, 13.1 Vetting legislation No specific structure arrangements to vetting OMCYA, improved and necessary provide greater DJELR brought into protection for operation by Q4 2011 victims of domestic and sexual violence 13.2 Strengthen vetting arrangements for 13.2 Legislation effectively those who may come into contact enforced (ongoing) with potential victims of domestic and sexual violence
[14] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [15] Justice Committee IPS DJELR Implementation structure Management of Sex Group Offenders Management of Sex Group Offenders
practice suitable for for suitable practice by implementation 2013 end legislation) by Q4 2011 Q4 by legislation) approach agency 2013 Q2 by explored risk perpetrator model management and developed by implemented 2013 Q4 programmes end by reviewed 2013 community of provision programme 2012. end by review Implement 2013 end by outcome light of finalised Report Report finalised of light Sex of Management of by Group Offenders 2010 Q4 bringing (including of operation into Implementation Implementation Identify best best Identify Sexual violence violence Sexual Domestic violence violence Domestic Feasibility of multi- of Feasibility Policy formulated in in formulated Policy Review operation operation Review 15.3 15.3 14.3 14.3 14.4 15.1 15.2 Progress Progress indicator 14.1 14.2 Cosc (to facilitate), HSE Garda, Service Cosc (to facilitate) Cosc (to facilitate) DJELR, IPS DJELR, HSE, Probation Service, IPS Garda, Indicative list of key bodies DJELR, IPS, Garda DJELR, IPS, Probation intervention programmes for for programmes intervention violence sexual convicted perpetrators violence sexual with dealing for and community the in perpetrators system justice criminal the outside management arrangements arrangements management violence domestic high-risk for perpetrators programme treatment prison new of violence sexual convicted for perpetrators perpetrators arrangements management violence sexual convicted for perpetrators management risk agency unconvicted for arrangements perpetrators violence sexual assessments for the courts in in courts the for assessments violence sexual convicted to relation Further develop current risk risk current develop Further Integrate custodial and community community and custodial Integrate Develop best practice actions actions practice best Develop Develop and implement risk risk implement and Develop implementation review and Monitor Explore the feasibility of multi- of feasibility the Explore Provide for pre-sentence risk risk pre-sentence for Provide 15.2 15.2 15.3 14.4 14.4 15.1 14.2 14.2 14.3 Activities 14.1 perpetrators measures to measures manage the risks posed by sexual and domestic violence with sexual violence perpetrators measures to deal measures Strengthen Strengthen Strengthen Strengthen 15 15 Action 14 Indicative list of key Progress Implementation Action Activities bodies indicator structure 16 Strengthen 16.1 Strengthen Domestic Violence Cosc (Lead) 16.1 (a) Plan (including Domestic Violence measures Perpetrator Programmes to ensure mechanisms for co- Perpetrator Programme to deal with their greater effectiveness ordination with victim Committee domestic violence support services and perpetrators capture of victim feedback) developed by Q3 2010 16.1 (b) Plan implemented from Q2 2011 16.1 (c) Increased co- operation and co- ordination with victim support services
17 Update the law on 17.1 Review and improve legislative DJELR 17.1 (a) Sexual offences DJELR with Cosc sexual offences provisions on sexual offences legislation brought into operation by Q4 2011 17.1 (b) New legislation effectively enforced (ongoing)
18 Update the law on 18.1 Improve legislative provisions DJELR 18.1 (a) New domestic DJELR with Cosc domestic violence protecting victims of domestic violence provisions to give further violence brought into operation protection to by Q4 2010 victims 18.1 (b) New legislation effectively enforced (ongoing)
[16] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [17] No specific structure No specific structure needed. Cosc to drive Independent external organisation Cosc (with NSC and NGO participation) Implementation structure Cosc-led data committee
To To ensure greater co-ordination To provide a solid foundation for
experience of victimsexperience 11 organisations relevant between 12 future actions on domestic and sexual violence
disseminated and and disseminated implications policy ongoing – up followed basis developed by Q4 2010 implemented by Q2 2011 to arrangements review and monitor organisational place in response State key all in by organisations 2012 Q4 groups representative of development on services and policy ongoing – programme research and planned each implemented year (b) Research Research (b) (a) Co-ordinated Co-ordinated (a) (b) Data plan Effective with held Consultation (a) Data plan 21.1 21.1 19.1 19.1 20.1 20.2 21.1 Progress Progress indicator 19.1 HSE, Garda, Garda, HSE, Probation Service, Courts Service, OOP CSO, (Lead), Cosc Garda, HSE, Probation Service, Courts Service, OOP Cosc (Lead) (Lead), Cosc OOP HSE, Indicative list of key bodies (Lead), Cosc To To improve the effectiveness of ensure that policy development To
evidence-based and take account of the ofthe account take and evidence-based 9 data improved through planning policy co-ordination data and capture 10 and service provision planning are ey Objectives ey K co-ordinated research programme programme research co-ordinated for assessing cross-organisational for assessing cross-organisational strategic impact to ensure maximum system effectiveness in the groups representative development of policy and services to develop and improve domestic to develop and improve and sexual violence data (including data collected for administrative purposes) and research/policy Encourage the development of a Encourage consultation with Develop an evaluation framework Work with all relevant organisations organisations with all relevant Work 21.1 21.1 20.1 20.1 20.2 Activities 19.1 oal 3: oal G evel evel Promote the design Promote Ensure improved improved Ensure Improve data on Improve to ground policy to ground development and service planning of planned research of planned research impact evaluation domestic and sexual violence L igh- 21 21 20 20 19 19 Action H ensure of greater To effectiveness policy planning service and Policy planning Policy Strategy implementation Key Objectives and review 13 To ensure that all actions within this strategy are monitored and progressed High-Level Goal 4: in a timely and comprehensive manner To ensure efficient and effective implem- 14 To ensure that due account is entation of the National Strategy taken from the lessons learned of the implementation from this strategy
Indicative list of key Progress Implementation Action Activities bodies indicator structure 22 Monitor progress in 22.1 Collate bi-annual reports on Cosc (Lead) 22.1 Bi-annual reports Cosc and on to Oversight the implementation strategy progress collated on time Committee of this strategy 22.2 Liaise on draft progress reports 22.2 Liaison takes place bi-annually on draft progress reports
22.3 Submit progress report, including 22.3 (a) Reports, including material derived from liaison material derived process, to Oversight Committee from liaison process, submitted to Oversight Committee on time 22.3 (b) Strategy Progress report submitted to Government on time
23 Ensure 23.1 Review effectiveness of strategy to Cosc (Lead) 23.1 (a) Conduct Cosc to drive. effectiveness prepare for future work comprehensive first No specific structure of strategy review of progress needed implementation by end Q2 2012 and second review by end Q2 2014 23.1 (b) Prepare review reports for Oversight Committee by end Q3 2012 and by end Q3 2014
[18] INTRODUCTION CHAPTER 1 CHAPTER 2 CHAPTER 3 CHAPTER 4 CHAPTER 5 CHAPTER 6 CHAPTER 7 GY E TRAT S E TH M O E BL N T O IO R T P E ODUC NG TH I NTR Chapter One I NT
E
S E
PR Part One Part Chapter One ntroduction to the Strategy
There is a need for a clear 1 1. ntroduction between the victim-survivor and those who are close to the person. Domestic violence direction for all this activity, a This strategy is a statement of the often includes the use and abuse of children, collective vision and a common Government priority actions to address as well as economic abuse. Controlling and domestic, sexual and gender-based violence intimidating behaviour, including threats view of effectiveness. in Ireland in the five-year period from early and blaming the victim, are common forms 2010 to the end of 2014. Action is being of emotional abuse. Older people can ex- taken to prevent and to respond to this perience abuse by carers and by those in a violence. However, a key problem is the position of trust. disjointed nature of current action. Six government departments, their agencies and Sexual violence refers to assaults that have up to 100 non-governmental organisations an explicit sexual content and includes (NGOs) are involved in work relevant to the a variety of forms including rape, sexual prevention and alleviation of abuse. There assault and sexual harassment. These forms is a need for a clear direction for all this of sexual violence can occur in a wide range activity, a collective vision and a common of relationships and locations. They can be view of effectiveness. This strategy aims perpetrated by family members, current and to meet that need and to provide a clear former sexual partners, other relatives and vision for all government-related action on friends, acquaintances (including colleagues domestic, sexual and gender-based violence and clients), those in a variety of authority in the period 2010-2014. positions, and strangers. Sexual assaults commonly involve one assailant, although There are real and practical reasons for multiple offenders are not uncommon. addressing the disjoint in the current system. The ages of the perpetrator and the victim A disjointed system does not provide may be similar or vastly different, and adequate protection to the victim4 nor many combinations of race, ethnicity, class, does it properly confront and deal with the status, and sexual orientation can occur. 4 There is much debate over what is the most perpetrator. Families suffer, communities Sexual violence can be in private or public appropriate term to identify a person who has suffer and society in general suffers. A locations, and in terms of rape, for example, experienced domestic and/or sexual abuse. disjointed system contributes to duplication can include many forms – marital rape, Terminology ranges from ‘victim’, ‘victim/survivor’ to and gaps in action, lack of confidence in familial/incestuous rape, acquaintance/ ‘survivor’. From a legal point of view the term ‘victim’ the system and lack of confidence between date rape, stranger rape, gang rape, custodial is often used as a statement of fact, i.e. the person organisations. Furthermore, it lessens rape, and rape as a war crime. being a victim of a crime. The use of this term is often the impact of the work of individual criticised for its negative labelling and disempowering of organisations. This strategy sets out a The strategy focuses on domestic and sexual those who have experienced abuse. The term ‘survivor’ plan for ‘whole-of-government’ action that violence, recognising that these are forms of is often used by individuals and agencies to describe a would provide a more effective system. gender-based violence. The gendered nature person who has survived domestic and/or sexual abuse, of domestic and sexual violence, the fact that recognising the person’s strength in living through and Three different dimensions of abuse perpetrators are predominantly men and recovering from those events. These terms are not to be characterise domestic violence: physical, victims mostly women and children, has led confused as being synonymous with one another and for sexual and emotional abuse. Behaviours that to the recognition of domestic and sexual this reason the strategy has opted generally for the term commonly occur in situations of domestic violence as forms of ‘gender-based violence’ ‘victim’, capturing as it does both the legal point of view violence include various forms of physical by the United Nations and in international highlighted above and the active role of the perpetrator violence such as kicking, punching, slapping, discourse (World Health Organisation, of such abuses and its impact on the abused. Similarly, smothering or choking, biting, throwing, 2005). In 1993 the United Nations General there is debate over the use of the terms ‘violence’ and and threatening with an object. The use of Assembly defined violence against women ‘abuse’. The strategy generally uses the term ‘violence’ to isolation can be a key device, for example as ‘any act of gender-based violence that reflect the seriousness of the behaviour involved. where the abuser restricts communication results in, or is likely to result in, physical,
[20] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [21] A disjointed system does not provide adequate protection to the victim nor does it properly confront and deal with the perpetrator. istening to victims to istening l 2 . experiences of domestic and sexual violence violence sexual and of domestic experiences provide an insight crimes. these understand that may help to for a new approach, outlines the policy and and policy the outlines approach, a new for and this work informing context legislative strategy. of the structure the introduces 1 It is not easy to explain the often hidden phenomenon experienced by people Ireland today in – by people in our circles, family in our social circles, in our situations work and The in following people who our related their communities. demonstration of strong societal support of support societal of strong demonstration accountability the victim and unambiguous of the Cath- the perpetrator. into The of Investigation ReportCommission by expressed the clearly of Dublin Archdiocese olic the need to support victims, for to reasonable opportunities to disclosure, provide increase understanding and of abuse sexual and recognition to to be take prepared action. informed and appropriate the to background the explains chapter This development of the strategy and the need due due account of the circumstances where the perpetrator is known, or is a stranger to the Thisvictim. both addresses strategy domestic and sexual violence and opportunity for is action that an takes account of the and similarities between differences abuse. of forms these Recent have revelations in highlighted the terms the need for to strongest action take of sexual nature criminal the seriously more and domestic violence, to unearth these hidden crimes and to provide increased are are often, though not of always, overlapping element sinister the share They problems. perpetrated frequently crimes, hidden being by persons in a ofposition supposed trust or complicated by to Measures tackle these crimes must take close relationships. often identical, preventative and responsive and responsive preventative identical, often they Two, Chapter in seen be will As action. context but may also be committed against against also but may be committed context a stranger. However, while they and are parallel, invite similarities the not identical, identical. identical. Domestic violence may include physical, sexual domestic the in occurs often and violence Sexual emotional abuse. the specific needs of particular groups. groups. particular of needs specific the Domestic and sexual violence are not a a consistent approach to all victims, the strategy takes a mainstream approach but consider will of actions implementation the with particular needs such with as particular older people, minorities, ethnic of members people, young people with disabilities of and the Traveller members community. To ensure victims victims of these crimes. the Furthermore, sexual and domestic that recognises strategy violence may be against perpetrated those have have regard to the primarily gender-based acknowledging while violence, this of nature and addressing the fact that men are also become more salient in the future. future. the in salient more become will actions strategy’s the of Implementation encountered these or other forms of gender- of forms other or these encountered they While countries. other in violence based in issue a as significant raised been not have may problems these moment, the at Ireland female female infanticide, and sexual violence as a weapon of it conflict. mayHowever, be that some people living in Ireland have not readily recognised as occurring in as Irish occurring recognised not readily violence, honour-based include These society. female genital forced marriage, mutilation, Gender-based Gender-based violence includes domestic violence and sexual encompasses forms violence of but violence that also are incidents incidents are perpetrated by men against children. their and women women’ (United Nations, 1993). The 1993). term Nations, (United women’ gender-based violence acknowledges that inequality gender in rooted is violence such chronic and of severe majority the that and sexual or psychological harm or suffering to suffering or harm psychological or sexual I put up with an awful life. I was afraid situation was too far down the road; that ‘I put up with an awful life. I to go to the Gardaí. I was afraid it would was for women who can get away.’ Jenny felt get out and he’d kill me altogether unable to tell anyone. Her journeys to the was afraid to go to the Gardaí. I (Survivor of domestic violence, as children’s school were closely timed and the was afraid it would get out and quoted in Watson and Parsons, 2005). mileage on the car was routinely checked. After years of severe abuse, involving sexual he’d kill me altogether.’ If the husband was taken away like, the abuse as well as physical abuse which on one children would not have anything to occasion resulted in her suffering a broken feed on as he is the breadwinner; a lot leg, with the help of her family she contacted of times when women tend to cope with support services. Jenny is rebuilding her life domestic violence [it] is sheer poverty and hopes that her story will help others. (Survivor of domestic violence, as quoted in Watson and Parsons, 2005). Anna came to Ireland and met and married a man from her home country. She was the [Society’s] view of rape is like a dark victim of very severe, ritual, physical abuse alley. The minute alcohol is mentioned and sexual abuse. She was not fluent in people see it differently. My mother did English and did not know how to get help. not believe me, so I buried it. I did not Her social circle was comprised exclusively want to upset other people (Survivor of friends of her husband and she was of rape by college classmate, as told to frightened to tell them of her situation in Cosc, November 2008). case they would not believe her or would not help her. In any event, Anna said she felt These are the words of people living in that if she told them they would see it as a Ireland who are or have been victims of betrayal of her husband. She couldn’t tell domestic and sexual abuse. Their stories her GP as her husband accompanied her to are replicated on a daily basis in our all consultations. After a particularly severe communities. This government strategy beating, she escaped from her situation listens to those voices and sets out specific through the assistance of her employer. actions which will be taken by State bodies Her child had been so traumatised by the to ensure that the possibility for such violence witnessed that he never smiled. violence is reduced and that, where it does After six months of intensive assistance he occur, those voices are understood and given began to smile and behave like a normal the support and services necessary to rebuild toddler. Anna is still terrified that her their lives. husband will find her.
The following scenarios are drawn from Joe was married with three young teenagers recent interviews with victims/survivors of and held a very responsible, high-profile job. domestic and sexual abuse. They provide an He experienced years of severe emotional understanding of the impact of the current abuse by his wife. Then his wife began to system. physically abuse him. Joe said he felt unable to continue with his job. He is devoted to Jenny5 is a survivor of domestic abuse. She his children but was afraid to seek help in has three small children. She lived on an case he lost custody. He felt he could not tell isolated farm without a phone. Her family anyone and would be seen as ‘a wimp’ if he were aware of the violence, but Jenny said she sought help. After years of misery he sought felt she ‘couldn’t get away from him; he had help from support services and through a hold on me.’ She saw a poster on domestic the courts. He was awarded custody of the 5 The names of the individuals are altered for the abuse once but she said she ‘felt that my children and is now in a new job. He said he purposes of anonymity.
[22] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [23] overnment response overnment (aged 17) explained, ‘Mammy was a was ‘Mammy explained, 17) (aged g 3 . people such as Norah and Helen. Their needs needs Their Helen. and Norah as such people a may involve range of broad organisations and of, This ofunderstanding levels violence. differing with sexual and domestic to, critical response these counter to aims strategy five-year which actions specific out sets and problems will improve our through approach to developed been has It prevention response. and a of process across structured consultation government departments, State agencies way. Mammy used to say, “Don’t worry about about worry “Don’t say, to used you Mammy Mammy, way. on, come “Ah say, to used I me.” around turn did I this.” like live to have don’t like live to have don’t you “Mammy, say, and on getting not westarted when That’s this.” her, rule to trying was I thought Mammy ’cos on go to prepared wasn’t I But ... Daddy like and, on going lot a was there knew I it. with you she know, knew that I Then knew. it any cope I couldn’t when point a certain hit arguing, were myself and Mammy and more when only arguing; always weren’t We like. Daddy came around start, we’d you know of up fed so was I Because of way. kind that on.’ going was he way the 1 consistent the at concerned is non-disclosure Government of The level high the and prevalence, as such these. of situations overall of or non-reporting lack of problems critical current The the across co-ordination and direction policy for obstacles and practical real create system to to court as ‘nearly as bad as it happening all over again ... I felt as if I was on trial, not him ... I got in justice court but not in society. The community haven’t accepted was ‘there that felt she says Helen his guilt.’ used She radius’. 25-mile a for agenda hate a to drive 40 km to buy milk and eventually had to sell her house and and her business community. her from away move Denise She was to able woman. cope, strong really of kind that sorrows, her drowning not like had lived by herself since her was raped by a family friend. Her Helen want not did and unsupportive were family to discuss the crime. She describes going about about speaking to her friends and felt too members family other to talk to threatened happening. was what about The last time was there was order an she argument, restraining a and Gardaí the called received has she says She son. her on placed a number of phone calls, from threatening her from recently more and partner son’s her She is and still afraid does grand-daughter. bills unpaid has also She anymore. out go not house. her on out carried work the from a a short space of time arguments of cost home the the pay would who about started his partner and son her and improvements, expressed an expectation that she think should not did she said Norah cost. the cover this was and the to refused agreement pay. and abusive verbally became arguments The her son pushed occasion one than on more She and had her. shoved bruises along her arms, but she was too afraid to go to her Norah GP. contacted support services as she did not know where to turn or who to talk to. She says she was embarrassed company company and getting out and in the last nine as much However, she can. about as months her life has changed dramatically. One of her three children returned home with his partner, daughter and grandson abroad. life adult of his most spending after intermittent in keep children two other Her them see not does she but her with contact her that was It son decided and very often. in move his would with her family because about spoke They live. to nowhere had they making some adaptations to the to facilitate house the larger family. But within is very sad that for his children a ‘huge part ‘huge part a his children for that sad is very lost’. been has childhood their of Norah eight husband years passed ago. She away, liking person, a sociable as herself describes not in society. The community not in society. haven’t accepted his guilt.’ ‘... I got‘... justice in court but The strategy ‘cuts across’ the and non-governmental organisations. It in the past thirteen years. The population is strongly based on evidence drawn from has increased by approximately 22 per remits of several government national and international research, including cent, and the age profile of the population departments and key agencies research carried out specifically to inform has changed. The over-65 population has the development and implementation of increased by 54,000 in the past ten years and such as the HSE, An Garda the strategic actions. This evidence-based is expected to double over the next twenty Síochána, the Courts Service as approach is a feature of the strategy and it years. The population of those aged 80 years will continue in the implementation of the and over is projected to more than double well as local authorities. actions by government departments and by 2026. While levels of inward migration State agencies in conjunction with broader have slowed considerably in recent times, partners. migration had grown steadily since the mid- 1990s. The 2006 Census figures recorded The National Strategy vision is that: 420,000 non-Irish nationals (excluding ‘not- stated’) from 188 countries and from a wide By the end of 2014 in Ireland, there will be: range of cultural and religious backgrounds.
» Clearer societal acknowledgment of Key response organisations have also the unacceptability of domestic, sexual changed greatly. For example, since 1997 and gender-based violence the health service has moved from eleven » Greater recognition and a broader health boards to a combined Health understanding of domestic, sexual and Service Executive; An Garda Síochána has gender-based violence undergone substantial restructuring; and » Greater confidence in high-quality the Courts Service has been established, and consistent services with adjusted administrative structures. » Increased safety for victims » Increased accountability of the Technology has also developed from a perpetrator situation where internet usage has more » Structured and improved planning than doubled in the period from 2000 and monitoring to ensure continued to 2008. Mobile phone subscriptions effectiveness. in Ireland have increased by 34 per cent since 2005 (www.comstat.ie). While Through the development of this framework technological developments bring advan- and the commitment of government tages of increased access to information departments and State bodies, working in and possibilities of reduction in isolation, partnership with all relevant services, this for victims of domestic and sexual violence strategy will deliver a strong foundation they may play an important part in the for an improved system of prevention and perpetration of the abuse. Technology response – Safer lives at home and in our may be abused to groom or stalk or even community. terrorise victims.
In view of the changed situation, the 1 4. the need for a new consistent prevalence and the low levels approach of reporting of these crimes, it is clear that a new approach is required. In The 1997 report of the Task Force on order to correct the disjointedness in the Violence against Women provided a solid system, the situation requires a national, base for many of the achievements since that comprehensive, research-based strategy time. However, Ireland has changed hugely to provide a clear roadmap by which all
[24] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [25] UNSCR 1325 promotes a gender perspective and 6 involvement in allwomen’s peace-making and peace- seeksbuilding, to ensure that women involvedare at all leadership levels and highlights the need to enhance the protection of women in conflict situations. differences in the preferred interventions. Current data indicate that while there are similarities in the primary and secondary interventions in instances of elder abuse and instances of domestic and sexual violence across the population generally, there are also significant Protecting Our Protecting Future now, for the first time, a strategic high-level high-level strategic a time, first the for now, connection between work on child abuse, these Through abuse. elder and abuse adult Cosc Cosc and the Office and for the HSE. This Older contact is People recognised as essential and should continue and be developed wherever possible; for example Cosc is on represented the HSE National Abuse. Elder on Committee Steering Similar links are in place with the Office of the Minister for Children and Youth Affairsand the HSEconcerning the child abuse perspectives of actions to be taken under While recognising this the strategy. differences between these issues, there is interventions in instances of elder abuse and and abuse elder of instances in interventions instances of domestic and sexual violence across the population there generally, are in also differences the significant preferred interventions. This strategy such differences recognises while enabling strategic address to be to taken action between links domestic and sexual violence across population the generally and the work of the elder abuse service. In practice, the elder abuse perspectives of through actions facilitated to be be will taken strategy this under between and collaboration contact ongoing health sector issues relating to health sector issues relating elder abuse. The review recent of noted that the of establishment dedicated has been structures critical implementation service. abuse elder the of development the to The considerable efforts for protections to older people national in of residential strengthen development the through settings policies, legislation noted. also are and inspections independent standards and Current data indicate that while there are similarities in the primary and secondary elder abuse. In addition to Cosc’s key role in in role key Cosc’s to addition In abuse. elder domestic to relation in activity co-ordinating and sexual violence, the Office for Older People, an office within the Department of Health and has Children, a key and role in cross-departmental to strategic, relation Protecting Protecting , , the Action National 6 the Department of Health and of Health the Department mechanisms mechanisms and a including to data unified dedicated system, address structures, Working Group on Elder Abuse, on Abuse, Group Elder Working Our Future, Children and the HSE have put in place perpetrated against adult men against and women, perpetrated over that recognises It people. older the of including Report the following years, few past the The strategy focuses on action to address violence sexual and gender-based domestic, ongoing co-operation and contact between between contact and co-operation ongoing Cosc and the of interest. mutual work on Affairs Department of Foreign Aid’s Aid’s Gender Equality the Policy, White work international and Aid, Irish on Paper undertaken under the National Women’s Strategy (2007-2016). However, there is UN Security Resolution 1325 ‘Women, and Peace Security Plan to implement Resolution 1325, Irish Foreign Foreign Affairs on domestic and violence sexual occurring in context, the such international as the implementation of against abuse and violence occurring Ireland. in It does not deal being with carried activities out by the Department of expected expected from and committed to by each organisation. Thisstrategy concerns action to be taken strategy, strategy, all relevant bodies departments have a and common collective of vision what is to be achieved, and of what is range range of stakeholders in government and Through organisations. non-governmental the development of a cross-governmental – – the National Office for the Prevention of Domestic, Sexual and Violence Gender-based – in consultation with a broad key key agencies such as the HSE, An Garda local as well as Service Courts the Síochána, authorities. It has been drafted by Cosc common destination. destination. common The strategy ‘cuts across’ the several remits of government departments and organisations organisations might find their way to a links, duplication and gaps are avoided and on Status of Women CSW) 1995 This is not a strategy for one co-ordination is improved. » The Universal Declaration of Human Rights 1948 organisation. It is the clear This is not a strategy for one organisation. » The International Covenant on expression of State policy. It is the clear expression of State policy. Civil and Political Rights 1966 However, while it is a government » The Convention on the Rights of approved and supported plan, it has the Child 1989 been strengthened by the dedicated and » The United Nations Millennium energetic involvement of many large and Declaration 2000 small NGOs across the country. The » The UN International Covenant range of individuals and organisations on Economic, Social and Cultural involved is indicated by the list of those Rights 1966 who made submissions on what should be » The UN Convention on the Rights contained in the strategy (see Appendix of Persons with Disabilities 2006 1). This co-operation continues in the » Council of Europe Recommend- willingness of these NGOs to assist in the ation 5 (2002) on the protection of implementation of the strategy. Through women against violence, 2002 such partnership all those involved in the » The European Convention for prevention of, and response to these crimes the Protection of Human Rights and are working towards a common goal. Fundamental Freedoms 1950 » The EU Plan on Best Practices, Standards and Procedures for 1 5. Policy context Combating and Preventing Trafficking in Human Beings 2005 A number of important international » The Council of Europe Convention and domestic policies and instruments on Action against Trafficking in form a significant reference base for this Human Beings 2005 strategy. » The European Council Framework Decision on Combating Trafficking in Internationally, the European Union Human Beings 2002 (EU), the Council of Europe (CoE) and » The UN Protocol to Prevent, the United Nations (UN) have been Suppress and Punish Trafficking actively encouraging progress in relation in Persons especially Women and to domestic and sexual violence. This work Children supplementing the UN focuses on exchange of the experience Convention against Transnational of various interventions, comparative Organised Crime 2000 analysis, encouragement of best practice » The Council of Europe Convention and agreement on common standards. on the Protection of Children against For example, the UN Convention on the Sexual Exploitation and Sexual Abuse Elimination of all forms of Discrimination 2007 against Women (CEDAW), particularly » The EU Roadmap for Equality general recommendation 19, is a legally between Women and Men 2006-2010 binding international obligation. Other » The European Union Charter of policy statements and legal instruments Fundamental Human Rights 2007 which are relevant include: » EU guidelines on Violence against Women and Girls 2008 » The Beijing Declaration and » The Council of Europe Disability Platform for Action (UN Commission Action Plan 2006.
[26] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [27] Protecting Protecting the Report A Strategy to The Way Home, Services, Children’s for Agenda The National Action Plan against 2004 Strategy Disability National The Report of the High Level National Men’s Health Policy Traveller Health, A National National National Action Plan on Social National Action Plan to Prevent Protecting Our Future, of Elder Allegations to Responding
» 2008) (HSE, Abuse » address adult homelessness in Ireland, 2008-2013 » Handbook Policy A » 2005-2008 Racism » » 2006 Travellers on Group » 2008-2013 » 2002-2005 Strategy » 2007-2016 Inclusion) (NAP Inclusion » and Combat Trafficking of2009-2012. Ireland in Human Beings » Abuse on Elder Group Working of the of Review 2009 the and 2002 Future Our include developments such as the developments outcome include of the fifteen-year review in 2010 by the of Women on Status the UN Commission of the implementation Declaration and of Platform for Action, the the Beijing proposed new European Union Roadmap on Gender Equality for beyond 2010, and the proposed Council of Europe Conven- Violence Combating and Preventing on tion Violence. Domestic and Women against National National and international developments that occur during the strategy will lifetime also of be of this In Ireland, implementation the strategy. considered in the these such would include as developments the forthcoming Positive Ageing Strategy, the Garda Strategy for and the Strategy for Housing with People Older Persons Disabilities. Internationally they would Other relevant national policies include: policies national relevant Other National National Anti-Poverty Strategy Towards 2016, 2006-2015 2016, Towards Plan Development 2007- National Strategy National 2007- Women’s
2016 » 2002 (NAPS) » » 2013 » and labour exploitation. exploitation. labour and Therehave been significant advancements in the achievement of well gender recognised as equality, an in important violence factor against women, through the implementation of including: national policies domestic domestic and sexual violence be may victims also of trafficking.indicators used Some to of identify persons the who have been trafficked for the purposes of sexual exploitation are similar to used to identify victims of sexual those violence, having e.g. to work long having hours, few their of cash no having and clothing of items Prevent toPlan Action National The own. Humanof Beings Trafficking and Combat measures the out sets 2009-2012 Ireland in for place in putting is Government Irish the victims who are fortrafficked both sexual women, women, there is increasing recognition of the fact that men are also victims of these crimes and that strategies to assist place. in be male to need victims Against the of backdrop this international developed has policy domestic Irish activity, set As approach. of strands various through out in Chapter Three, a range of policies has been applied across the health, justice, sectors. community and education, It is important to note that victims of These policies and conventions encourage and promote action well on as on response interventions and the prevention as sharing of While the general best practice. approach to tackling domestic and sexual violence has focused on violence against towards a common goal. the prevention and of, response to these crimes are working of the strategy. Through ofsuch the strategy. partnership all those involved in the willingness of these NGOs to assist in the implementation This co-operation continues in Irish and international material 1 6. legislative context Criminal Law (Human Trafficking) Act 2008. on the subject of domestic, National policy is also reflected in sexual and gender-based legislation. The Domestic Violence Act The existence of legislation with strong 1996 gave authority to District Court measures and heavy sentences provided violence has been an important Judges to issue Civil Orders designed to therein is an indication of the seriousness source of reference and provide protection to victims of domestic with which Ireland views domestic and violence. An applicant (victim) can apply sexual violence. However, this legislation information for the strategy. to the Family Law Court for Orders can only be applied when there is a case (Safety, Barring, Interim Barring and before the court. Research referred to in Protection Orders) against a respondent Chapter Two shows there is a reluctance (perpetrator). Breaches of any of these to disclose, to report and to seek help. Court Orders constitute a criminal offence There may be valid and understandable which gives the Gardaí the power to arrest reasons for this, but there are also actions and take the respondent before the issuing which can be taken to make our system of court to be dealt with as appropriate preventing and responding to domestic under criminal law. All criminal law and sexual abuse more accessible, stronger, relating to assault, stalking, harassment clearer and more effective. and threatening behaviour may be brought to bear against a perpetrator of such violence. 1 7. strategy development methodology Legislation enacted in relation to sexual offences includes the following: Aware of the relevant policy background and working with key stakeholder Offences Against the Person Act 1861 organisations, the following touchstones Criminal Law Amendment Act 1885 were considered as fundamental to the Punishment of Incest Act 1908 production of an effective strategy: Criminal Law Amendment Act 1935 Criminal Law (Rape) Act 1981 » A clear understanding of domestic, Criminal Law (Rape) (Amendment) sexual and gender-based violence Act 1990 » Robust fundamental research Criminal Law (Sexual Offences) Act 1993 grounding the strategic actions Criminal Justice (Public Order) Act 1994 » The opportunity for building Criminal Law (Incest Proceedings) trust, co-ordination and collaboration Act 1995 through the development of the Sexual Offences (Jurisdiction) Act 1996 strategy Non-Fatal Offences Against the Person » Recognition of the responsibilities Act 1997 and experience of the stakeholders Child Trafficking and Pornography » The need to take into account Act 1998 the experiences of victims and those Children Act 2001 (Part 12) affected Sex Offenders Act 2001 » The recognition of the specific Child Trafficking and Pornography needs of particular ‘at risk’ groups such (Amendment) Act 2004 as people with disabilities, older people, Criminal Law (Sexual Offences) Act 2006 members of the Traveller community, Criminal Law (Sexual Offences) and migrants. (Amendment) Act 2007
[28] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [29] methodologies and examining the current situation regarding service provision in Ireland, with a specific emphasis on co-ordination across service providers. Due to the shortage of research in Ireland, a baseline research programme was developed, taking account of suggestions from the public and from key Thisstakeholders. programme included applying quantitative and qualitative research Theneed for co-ordination greater The need to increase awareness
of these issues, and more importantly to improve society’s understanding of issues these » co-operation and » justice justice and NGO sectors forum. attended The primary the purpose of the was day to a stimulate national debate around civic of role the highlight to and issues these society in challenging these abusive behaviours. criminal and indeed Key messages arising from the discussion were: common vision of the way forward. forward. way the of vision common The conference was followed by a forum on domestic and sexual abuse hosted by President Mary McAleese at on Uachtaráin 1 October 2008 to Áras discuss an the issues of domestic and sexual against abuse women and men, including older people, and to report or help explore seek to the difficult it find reasons victims why their abuse. Over 100 people working at academics leading local levels, and national housing, health, the across professionals and perspectives. A number of the presentations presentations the of number A perspectives. focused on improving the responses of and specific services such as evaluating housing, policing, the justice system and the health-care system. Others presented that could be to strategies applied improve co-ordination between these services and to ‘one-stop enhance including prevention, strategic and models, assessment risk shops’, The frameworks. management performance opportunity a valuable provided conference for key stakeholders to to exchange come information and together to forge a In In order to assist in Cosc submissions, the organised a preparation conference, of in Waterford Institute of in Technology, ‘Stopping the theme May 2008 to consider theme The works?’ what – violence domestic was addressed from a variety of different Strengthening Strengthening the preventative victims for services Support offenders with Dealing of victims Protection ofaction. Effectiveness
» » mechanisms » » » were were invited under the following themes: the public and to organisations relevant for stakeholder submissions on should what be included in the Views strategy. The first major step in the development of the strategy was the invitation to continue continue to inform the of the implementation strategy actions as well as assisting in the identification of actions. measurements strategy of the of effectiveness collection collection systems, and interventions in the This justice sector. work has informed the development of the strategy and will attitudes to domestic abuse in the general po- general the in abuse domestic to attitudes schools programmes second-level pulation, on healthy relationships, relevant data ordination across service providers. public on out carried also was work Research quantitative and methodologies and examining the current qualitative research situation regarding service provision Ireland, in with a specific emphasis on co- developed, taking account of suggestions stakeholders. key from and public the from This programme included applying input from both of shortageofIreland, inthe Due researchto these perspectives. a baseline research programme was other literature such as major research, key research, major as such literature other journal articles and published statistics. This provided a valuableoverview of and prominent research in both national and international contexts has been used. The scope of material included scientific and subject of domestic, sexual and based gender- violence has been source of an reference important and information this end, the andforemost To for the strategy. Irish Irish and international material on the » The need to focus on the submissions, the national and regional The breadth of consultations responsibility and accountability of consultations, and the research delivered a perpetrators wealth of material informing the strategy. extended across health, » The key role played by the criminal The material was analysed thematically housing, justice, education, and civil justice system in challenging an and sectorally. This information formed abuser to change his/her behaviour the basis of discussions with government social services and the non- » The need to continue and enhance departments and relevant public sector governmental sectors including programmes in schools bodies to identify the goals, objectives » That there is no single solution, that and actions required. These actions were professionals, government the needs and wishes of each victim incorporated in a draft strategy outline officials, researchers, individual may not be the same, and that most which formed the basis for a further round importantly those needs and wishes of consultations with State and NGO victims and survivors, and other must be recognised and respected. stakeholders. This round of consultations interested parties at national aimed to ensure that the proposed actions A total of 48 responses was received to were reasonable and feasible, and would and international level. the call for submissions, from a range of provide a solid basis for the building of a organisations and individuals including common direction. statutory bodies, the public sector and non- governmental organisations. A list of those In addition to the normal process of who made submissions is at Appendix circulation prior to submission of the 1. A report was produced and published strategy for government consideration and providing a summary of the observations approval, the final draft of the document and recommendations made in the was also provided to State and NGO submissions received. The aim was to give stakeholders at national and regional level voice to the full range of positions expressed. for any further observations to inform Having considered the material submitted, implementation. The ongoing consideration Cosc arranged for national and regional of the views of all participants – State, consultations, inviting individuals and NGO, professional, research and victims organisations who had made submissions – assisted greatly in the formulation of the as well as other key stakeholders. strategy.
The breadth of consultations extended across health, housing, justice, education, 1 8. strategy model social services and the non-governmental sectors including professionals, government During the development of the strategy, officials, researchers, individual victims consideration was also given to the and survivors, and other interested parties conceptual model suitable for the strategy. at national and international level. The A conceptual model is usually a visual consultations considered the material representation of the structure of the submitted so as to ascertain prioritisation strategy. The purpose of the model is to and gaps, and particular questions were provide an overview of the links between posed to ensure a deeper understanding of the various actions to be taken under the particular problem areas. Continuing the strategy. There are various types of models process of transparency and consultation, such as the life stage model which organises a report of the material gathered from the the actions to be taken according to the consultations was produced and published. age category of the people affected by the strategy, i.e. child stage, young person, The conference, the President’s forum, the adult, older person, etc. The ecological
[30] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [31] complexity, complexity, consequences and This impact. recognition is and important for extended families, the community broader understanding victims, those for perpetrators, important equally is It society. and who come into with contact those affected services. of provision the in crimes these by the ability of nurses, doctors, example, For social workers, Gardaí, housing officials, teachers, lawyers and those working in economic challenges, it became increasingly increasingly became it challenges, economic would approach sensible most the that clear be to aim for the development of a solid framework which would deliver a strong the in work expansive more for foundation future. Thisstrategy expresses a common the in it embed to important is It direction. range wide a across undertaken being work of organisations. The model chosen capable of making a significant impacton is one prevention, cohesion which of activity, is as as well basic improvements in strength services. of the The model is in its simplicity impact. on emphasis its and Primary intervention is essential. possible to reduce It the incidence of is abuse raising awareness and through prevention, changing community attitudes (Shepard and Pence, 1999; Jenkins and Davidson, 2001). Prevention can through enhanced be recognition maximised of crimes and these a better understanding of the jurisdictions was of strongly a in combined implementation of strategy. favour the Nevertheless, actions must grounded be in an complexity understanding of of these the the problems, fact that and not all domestic of violence is sexual and violence, not all sexual abuse is by committed those in a close relationship to the victim. This isdealt with further in Two. Chapter Given the current state of development of interventions in Ireland, and recognising Referring) (Reporting, Secondary Responding, Intervention was scope for confusion and competing priorities between addition two the advice strategies. from In several other and the scale of co-ordination between, and and between, co-ordination of scale the and level of progress within relevant State and different is organisations non-governmental in Ireland. It was very important to bear the in points mind these considering when Ireland. to of strategies transferability was alsoproducing to given Consideration two separate strategies – one for domestic and one for sexual cognisant of violence. the However, parallel and sometimes overlapping issues paragraph 1.1 above, it was as felt that there mentioned in considered for the purposes of the strategy, strategy, ofthe purposes the for considered Organisation Health World various were as taken approaches the and (WHO) models jurisdictions. in other in strategies Of all Each the identical. are domestic two no and studied, sexual strategies violence administrative, its in differences has country health, housing, social service, justice and legal systems. The position Constitutional and ofNGOs role The identical. not also is can vary. with government the relationship Critically the availability of reliable data model model considers the strategy through the lens of the individual, his/her community were models These etc. society, broader and Policy outcome oversight (Co-ordinated impact assessment and evidence base) (Co-ordinated Primary (Prevention, (Prevention, Intervention Understanding) Recognising and Using this model, the strategy the courts to recognise and understand chapters, the key actions required at this domestic and sexual abuse can provide time in Ireland can be summarised as: is constructed to achieve the substantial relief to those affected. following overall objective: » Action to increase understanding Secondary intervention arises when an of this abuse the development of a strong incident has occurred and there is a direct » Effective, consistent and accessible framework for sustainable role for services to deal with a report, to services respond or to refer. Accessible, effective » Development of a common vision intervention to prevent and and consistent services are critical to the with which all stakeholders can effectively respond to domestic, cessation of the abuse and recovery from identify and recognise their role these crimes. While domestic and sexual » Central leadership and an integ- sexual and gender-based violence are multi-sectoral and multi- rating strategy violence. dimensional problems, there are core » Collaboration and co-ordination factors in any effective response – available across relevant services information on services, informed services, » Reliable and systematic data high standards in service delivery, and inter- » Policy and service planning based agency co-ordination and co-operation. on robust research and evidence.
The model’s strong point is that all action These key actions are reflected in the on primary and secondary intervention four High-Level Goals set out in the is surrounded by, and interwoven with, a strategy. clear emphasis on co-ordinated impact assessment and the generation of evidence on which policy and service planning is The High-Level Goals are: firmly based. It is not enough that one action in the strategy is progressed. It is 1 To promote a culture of pre- not enough that one organisation or one vention and recognition through sector is making advancements. The key increased understanding of domestic, difference is that activity is planned and sexual and gender-based violence undertaken with a conscious regard to 2 To deliver an effective and impact and outcome. With a reasonable consistent service to those affected level of evaluation and monitoring and 3 To ensure greater effectiveness a systematic approach to data, it will be of policy and service planning possible to assess the overall impact of the 4 To ensure efficient and effective strategy and of our national approach to implementation of the strategy. these problems. The High-Level Goals cascade down into Using this model, the strategy is construct- detailed ‘on-the-ground’ activity through ed to achieve the following overall objective: the objectives, actions and activities that the development of a strong framework for are set out in the following chapters. sustainable intervention to prevent and The development of the strategy has effectively respond to domestic, sexual and involved consideration of the precise gender-based violence. objective of each element of activity, the actual activity envisaged, and the key bodies to be involved in the delivery of 1 .9 strategy structure the activities. The strategy also includes progress indicators and sets out the As will be explained in the following relevant implementation structures.
[32] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [33] ‘Disclosure’ is the term used to refer to when the 7 victim reveals his/her experience of domestic or sexual abuse to a service for exampleprovider, a person operating in the‘Reporting’ health sector. is the term usually applied when a formal allegation of a criminal offence isSíochána. made An Garda to The development of the strategy has been an important exercise in collaboration and co-ordination, and lessons learnt in this process will be carried through into the implementation of the strategy. may not necessarily be driven by by driven be necessarily not may 7 An An increase in the level of That people in thecommunityand Conclusion
better better informed about how to respond to disclosures of domestic, sexual and violence. gender-based » disclosure and asreporting, a result of improved opportunities for disclosure system response the in confidence and » in service-provider organisations are 11 . Part Part Two of Chapters the Four, Five, Six and strategy, Seven, sets comprising working in partnership with in a working range partnership broad is it bodies, non-governmental and ofState now clear which actions are required and will be taken over the coming chapters. five following the in years. out set are These Part One of Chapters the Two and strategy, Three, comprising presents problem the to be addressed. Chapter of and sets an out understanding domestic Two sexual violence. Chapter Three describes the current system in Ireland. response of prevention and been devised to ensure cross-government monitoring. This is further dealt with in Seven. Chapter 1 Theof development this strategy provides a major opportunity to radically improve Ireland’s prevention of to and domestic, sexual to Listening ofthe voices response victims, violence. and gender-based recognising the response landscape and Effective implementation of this strategy will improve these levels. It is important to note that an increase in disclosure and reporting an increase in prevalence but by improved opportunities for disclosure and a more of system response. and effective accessible closely bewill implementation on Progress monitored and a specific structure has eadline indicators A A reduction in the prevalence of
h domestic, domestic, sexual and violence gender-based » 10 . strategy are: strategy identified for strategic action. action. strategic for identified The key headline indicators for this will be seen in the the problems with following data chapters, in this well documented. area This is are one critical area The overall success of the be strategy measured will by headline indicators. As development of policy and services. of services. policy and development 1 ensure ensure that the voice of those affectedby these crimes is taken into account in the implementation of the strategy and in the will play a key role in leading, facilitating and promoting many and of will liaise with stakeholder groups the to activities the following chapters. Insofar as is possible possible is as Insofar chapters. following the existing committees will be limiting the need for new Cosc structures. used, thus strategy. strategy. Thestrategy will bedelivered through the implementation structures delineated in in collaboration and co-ordination, carried be will process this in and learnt lessons through into the implementation of the State State and NGO bodies at national regional and level. The development strategy of has the been an important exercise process process that might stifle initiative. All of this has been achieved through ongoing and detailed consultation with partner broad broad approach was chosen to flexibility in provide the implementation prescribed a promoting of than rather actions the exercise exercise in collaboration and new ways of Theworking. process to be undertakento achieve the strategy is set out in general of terms in this Two Part document. This Similarly, implementation will Similarly, itself be an out the actions to be undertaken in order The following chapter outlines the problem to tackle the problem more effectively. to be addressed in this strategy. It presents Chapter Four explains action to be taken evidence to assist in understanding domestic, under primary interventions; Chapter sexual and gender-based violence. Through Five deals with secondary interventions; understanding, we recognise the voices of Chapter Six deals with policy and service the victims and survivors and are in a better planning and Chapter Seven deals with position to develop more effective responses strategy implementation and review. to their needs.
[34] INTRODUCTION CHAPTER 1 CHAPTER 2 CHAPTER 3 CHAPTER 4 CHAPTER 5 CHAPTER 6 CHAPTER 7 AL U X E CE , S , N IC E L ST E VIO M ED DO NG DI R-BAS DE N E RSTAN wo T G D DE Chapter UN AN Chapter Two Understanding domestic, sexual and gender-based violence
Domestic, sexual and gender- 2 1. ntroduction harassment and trafficking. However, the danger of emphasising distinctions is that based violence are global In order to tackle the subject of domestic, connections between domestic and sexual health, human rights and sexual and gender-based violence, it is violence – such as woman and child abuse necessary to have a clear understanding of in families – as well as the accumulation of developmental problems. the problem. What is domestic violence? individual, lifelong experiences and con- These problems have profound, What is sexual violence? What is gender- sequences may be neglected. That said, in based violence? When does this violence some instances it may be more appropriate immediate and long-term occur? What types of behaviours are to consider domestic and sexual violence as consequences involving generally covered by these terms? How distinct phenomena, with separate causal extensive is the problem and what are the and risk factors. Consequently where poss- physical, psychological and barriers to its resolution? ible due recognition must be given to the social effects. particularities of the issues involved. Drawn from an examination of inter- national and Irish research, this chapter sets out the key characteristics of the problem of 2 2. a general understanding domestic, sexual and gender-based violence. of the violence Consideration is given to prevalence, risk factors, impact and consequences, reporting Domestic, sexual and gender-based vio- and disclosure and the overall implications lence are global health, human rights and of the characteristics for the development developmental problems. These problems of solutions. With an understanding of have profound, immediate and long- the problem, later chapters examine the term consequences involving physical, responses to the problem, the current psychological and social effects. interventions applied in Ireland and the solutions to be implemented in Ireland in Despite the various forms of domestic and the period 2010-2014. sexual violence worldwide, there is one clear pattern in the occurrence. A growing body of This chapter may appear to concentrate international research examines the extent more on domestic violence than on sexual and patterns of gender-based violence across violence. This is simply because the breadth a range of countries. This work indicates and reliability of what we know varies: of that these forms of violence and abuse are the two, domestic violence has been the universal, occurring in all countries of the most researched issue, with sexual violence world. It also reveals that, generally, the subject to far less scrutiny. Consequently perpetrators are well known to their victims. studies of the prevalence of rape and sexual A ten-country study on women’s health assault are less common. Nevertheless, it and domestic violence sheds light where should be noted that the actions set out few data were previously available (WHO, in this strategy apply equal priority to 2005). The study finds that, depending on domestic and sexual violence. the country, between 15 per cent and 71 per cent of women reported physical or sexual Where distinctions between domestic violence by a husband or partner and that and sexual violence are made, the fact that significant numbers of women experience these may be considered by some to be more than one form of abuse. In fact women analytical rather than experiential needs most often describe patterns of abusive to be acknowledged. For example, rape is behaviour and repeat victimisation in these often an element in domestic violence and relationships. The most common patterns may also occur in the contexts of sexual are women experiencing physical abuse only,
[36] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [37] Includes both currentIncludes and former partner. Data from the British Crime Survey for England and attempts. Including 8 2007/08. Wales 9 10 The studies that are available consistently indicate that domestic and sexual violence are experienced by both women and men. while for male victims, 10 neglect neglect (1.1 per cent), financial (0.7 physical (0.4 per cent), psychological per cent), cent). per (0.2 sexual and cent) per (0.4 per cent of people aged 66 and over, living in in living over, and 66 aged people of cent per that they reported had households, private experienced involving mistreatment/abuse friend close or worker care member, family a Over half (51 per year. previous the during cent) of abuse in experienced the previous year involved a partner or spouse, 49 per cent another family member, 13 per cent a and 5 care worker per cent a close friend A). (Figure As can be seen were: from abuse of types Figure different B, for prevalence last year exhibit exhibit an increased risk of experiencing many forms was it alone, UK the in area one In of violence. children domestic 5,000 approximately and that estimated sexual are directly affected by domestic violence et (Stanko regard to al, With 1998). older undertaken research of the bulk the people, in this area is international, and perhaps closest to home is a study of of prevalence mistreatment among older people Neglect England, in and Scotland, Abuse Wales of and Study Northern UK The Ireland. 2.6 overall that finds (2007) People Older of is is their partner, the most is common perpetrator someone else known (e.g. date, friend, acquaintance or colleague) (Roe, 2009). of forms multiple to experience likely more Women are abuse et domestic (Povey al, 2009) while and to 2009), (Roe, victimisation repeat suffer of type one experience to likely more are men 2009). al, et (Povey abuse There are other less vulnerable groups, most notably well children, who documented disability, a with people and elderly the by their partner, ex-partner or lover (48 versus versus (48 lover or ex-partner partner, their by considerably a at are men while cent) per 13 acquaintance an by killed being of risk greater and (Hoare intimate an by than stranger, or of victims female For 2008). serious Povey, perpetrator common most the assault, sexual
9 the most recent data on the 8 In terms of the nature of abuse experienced, experienced, of abuse nature of the terms In killed be to men than likely more are women of women and men reported experiencing a experiencing reported men and women of 2009). al, et (Povey assault sexual serious including a partner or family member. The a or member. family partner including majority of this is accounted for cent per 1 than Less by assault. sexual serious less the last year. Approximately 3 the per last Approximately cent year. of had men of cent per 1 than less and women a experienced sexual assault by any person again the most commonly experienced type, type, experienced commonly most the again with 5 per cent of women and 4 per cent of men reporting having experienced it in and and women are less marked in relation to experiences they had in the year prevalence) prior point or to year last (i.e. survey the (Finney, 2006). Abuse by a partner was was was the most common type experienced by women (27 per cent) and by men (16 per cent). The differences between men 30 30 per cent of women and 20 per cent of men experienced some form of intimate Abuse violence. by a partner (non-sexual) In In the UK, and men by violence of intimate experience that indicate sixteen of age the since women prevalence prevalence studies are beginning to cover the extent of and domestic sexual violence women. and men both among extent to extent to which issues relating domestic and sexual are violence for addressed both women and men. Gradually, however, emphasis, particularly in large-scale research, research, large-scale in particularly emphasis, women. towards violence men’s on been has This inclination has severely limited the for for the context; international Gadd, Watson 2000 and 2002 al, et McGee Scotland; for the date To Ireland). for 2005, Parsons, and indicate indicate that domestic and sexual violence are experienced by both women and men (see Coker et al, 2002; Schafer et al, 1998 patterns are accompanied by the controlling controlling the by accompanied are patterns partner. intimate their of behaviour The studies that are available consistently or physical abuse and sexual abuse, and both both and abuse, sexual and abuse physical or Of those who had experienced mistreatment Abuse experienced involving Partners/Spouses, Other Family Partner/ Spouse in the previous year, 6 per cent reported Members, Care Workers and/or Close Friends experiencing more than one form of abuse. Far more abuse (physical, psychological and 60% Another Family Member sexual abuse combined) was perpetrated 51% 49% by men (80 per cent) when compared to 50% women (20 per cent). The split for financial Care Worker abuse was more equal (56 per cent by men 40% and 44 per cent by women) (O’Keeffe et al, 2007). Men aged 85 and over are more likely 30% Close Friend to have experienced financial abuse than men in the younger age groups, whereas 20% 13% older women are more likely to report neglect (O’Keeffe et al, 2007). In the general 10% 5% population having a limiting disability or illness is strongly associated with domestic 0% abuse for women but not for men (Povey et al, 2009; Finney, 2006; Coleman et al, Figure A* 2007). Particular factors such as social and Source: O’Keefe et al, 2007 physical isolation, dependence on carers and *Respondents could mention more than one person and so percentages need not sum to 100. communication difficulties may place people with a disability at greater risk of domestic abuse (British Medical Association, 2007).
2 3. the prevalence of the violence: the Irish context
The evidence available on physical, sexual and emotional forms of domestic and sexual Last year prevalence for different types of Abuse and Neglect of Neglect violence in Ireland reflects the global picture. Older People In Ireland the definition of domestic violence adopted by the Government Task Force on 1.2% Financial 1.1% Violence against Women refers to ‘... the use Abuse of physical or emotional force or threat of 1.0% physical force, including sexual violence, in Psychological Abuse close adult relationships’ (Task Force on 0.8% 0.7% Violence against Women, Report, 1997:27). The report makes clear that domestic 0.6% Physical Abuse violence covers a broad range of behaviours 0.4% 0.4% and goes beyond actual physical violence 0.4% (e.g. punching, slapping, hitting, shoving and 0.2% Sexual other forms of physical and sexual assault). 0.2% Abuse Domestic violence can also involve emotional abuse: ‘the destruction of property; isolation 0.0% from friends, family and other potential sources of support; threats to others including Figure B children; stalking; and control over access to Source: O’Keefe et al, 2007
[38] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [39] thatin findsthecase of both 11 Based upon telephone interviews of 3,120 emotional emotional nature from a partner at some known known to the abused person than rather a for cent per 30 versus cent per (70 stranger and women 62 per 38 versus cent per cent for men) (see Figure C for for breakdown men). for D Figure and women intimate relationship intimate that relationship for causes, or consequences risks negative significant causing, show results The 23). (p. affected’ person the 15 in per of that, cent Ireland, and women severely experienced of have men 6 cent per abusive behaviour of a sexual physical, or 11 respondents. women women and men who person experienced a sexual often most was abuser the violence, Almost one-quarter of the of perpetrators violence against women as adults were intimate partners or Thisex-partners. was the case for just over 1 per cent of abused 2002:98). al, et (McGee cent) per (1.4 men The National Study of Domestic Abuse (NSDA) (Watson and Parsons, provides 2005) the representative most picture of abuse of domestic recent impact and of makes prevalence study This nationally Ireland. the in men and women nature, a distinction between those experiencing abuse severe of and minor incidents abuse. Severe domestic abuse is emotional of physical, defineda pattern ‘… in as report the in an partners between or behaviour sexual money, personal items, food, transportation transportation food, items, personal money, (1997:27). telephone’ the and in Ireland Violence TheAbuse andSexual (SAVI) study (McGee et al, 2002) finds that 42 per cent of women cent and of 28 per men experienced some sexual form abuse of or assault in their 20 Furthermore, lifetime. per cent of girls and 16 contact reported Ireland in boys of cent per childhood. in abuse sexual report The 38% 30% 62% 70% Known Stranger Stranger Known
Whether or not the Abuser was Known or was a Stranger Stranger a was or Known was Abuser the not or Whether Violence Sexual experienced have who Men to Whether or not the Abuser was Known or was a Stranger Stranger a was or Known was Abuser the not or Whether Violence Sexual experienced have who Women to Figure D Figure 2002 al, et McGee Source: Figure C Figure 2002 al, et McGee Source: Girls and young women are time in their lives. Nine per cent of women likely to be female by a larger margin: sexual experienced severe physical abuse, 8 per cent abuse (female 75 per cent: male 25 per cent) more likely to experience sexual experienced severe sexual abuse and 8 per and physical (male 32 per cent: female 68 abuse. Women with physical cent experienced severe emotional abuse. per cent). The alleged perpetrators are most commonly those with the closest relationship or learning disabilities are The study found that men, in contrast, to the client – son/daughter and partner/ particularly vulnerable to sexual are less likely than women to experience husband/wife. In 35.6 per cent of cases, older severe abuse of either a physical, emotional people report more than one abuse type. abuse, although among older or sexual nature: 4 per cent of men people the risk of abuse also experienced severe physical abuse and 3 per Over half of all cases referred related to cent experienced severe emotional abuse. individuals with at least one possible/ increases with declining health The numbers who experienced severe suspected health issue. These were status, particularly those living sexual abuse are much smaller, at 1 per cent predominantly mental and physical health (Watson and Parsons, 2005). factors. As explained in the HSE report with a limiting long-term illness. (HSE Elder Abuse Service Developments Prior to 2007 there was little comprehensive 2008, Open Your Eyes, Feb 2009) in relation data on the incidence of elder abuse in to physical health, this corroborates research Ireland. However, with the establishment of evidence which has shown that older people the dedicated structures to implement the in poor health and who have functional recommendations of Protecting our Future, limitations are at heightened risk (Beach this data gap has now been addressed in et al, 2005; Fischer and Regan, 2006). In relation to cases of elder abuse reported addition, with regard to mental health, to the HSE. Non-mandatory reporting research has found that victims are likely to on elder abuse to the HSE since 2007 has experience mental health problems, including resulted in over 4,000 cases of alleged abuse depression, low self-esteem and substance being documented. abuse (Dyer et al, 2000; Fischer and Regan, 2006). The latter, regarding substance abuse, There were 1,840 referrals of elder abuse to is not borne out in these results. the HSE in 2008. The indications are that the 2009 data on allegations of elder abuse referrals to the HSE will follow similar 2 4. risk factors patterns to those for previous years. While 2007 data (927 referrals) did not reflect a full The risk of experiencing domestic and calendar year of reporting, the data nonetheless sexual violence is heightened at particular show a significant increase. In 2008 there stages along the life cycle. Girls and young were 2,479 alleged abuse referrals, with 36 women are more likely to experience sexual per cent of referrals including more than one abuse. Women with physical or learning type of abuse. Excluding cases of self-neglect, disabilities are particularly vulnerable to psychological abuse is the most common form sexual abuse, although among older people of alleged abuse cited (26 per cent), followed the risk of abuse also increases with declining by neglect (19 per cent), financial abuse (16 health status, particularly those living with per cent) and physical abuse (12 per cent). a limiting long-term illness, experiencing It is important to note that sexual abuse only a lower quality of life and suffering from represented 1 per cent of cases. depression (O’Keeffe et al, 2007). An analysis of the 2008 referrals to the HSE The alleged victim of abuse was female in 67 shows that the incidence of allegations per cent of total referrals. In the case of sexual of elder abuse rate per 1,000 population and physical abuse, the alleged victim was increases with age, from 2.3 in the 65-79 age
[40] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [41]
In 2007, ofIn the 668 cases for which an outcome Excluding self-neglect. was available, 35 per cent were substantiated, 23 per cent were not substantiated and 42 per cent were inconclusive. clarity, For separate statistical analyses should be undertaken for substantiated cases, not substantiated and inconclusive cases. Of the 1,840 referrals made in 2008, on investigation (excluding self- neglect 23 percases), cent were substantiated, 31 per cent were not substantiated and 47 per cent were inconclusive (HSE, 2009). 12 13 The evidence is clear that children are at an increased risk of being assaulted when theylive with domestic violence.
13 psychological abuse, psychological 12 when they live with domestic violence. when For they live violence. with domestic example, Osofsky (1999) concludes from who are exposed that children her research cases with very different outcomes. different very with cases of accumulation long- substantial a and been has There short- the regarding research reliable children for implications developmental term Thiswork violence. who live with domestic underlines the harmful potentially impact involved (see below). Moffitt and from their Caspi review (1998) of estimated, the that children, on violence ofdomestic effects witnessed were attacks physical of children that two-thirds clear is evidence The children. by are at an risk increased of being assaulted While there has not been similar prevalence prevalence similar been not has there While work undertaken in Ireland, information from reports of alleged or elder suspected in to abuse 2007 HSE case workers senior reported and examined been have 2008 and (HSE, 2009). against In abuse alleged both involving years, there referrals more were women than against men. For both years the types of alleged abuse reported were, in It order, descending abuse. physical and abuse financial neglect, statistical the that however, noted, on be should based are HSE the by undertaken analyses women (Walby, 2004). Social isolation has Social 2004). isolation women (Walby, social poor a with the risk of to been found increase domestic people older being of risk Similarly, higher abuse. significantly a have UK, the network In 2004). Pillemer, and (Lach abused contact no regular with alone live who those higher notably a report family or friends with of level both men among older and neglect those and over); and years (66 women older private) or (social housing abuse rented of in lived rates who prevalence higher have to 2007). al, tended et (O’Keeffe owner-occupiers than Pregnancy is Pregnancy with associated an a increased partner from abuse physical of current risk et al, arising 2002) and results (Richardson that indicate Survey Crime the British from for the of presence violence is children with associated domestic of risk the double nearly been disclosed to them by a minority ethnic ethnic a by minority them to disclosed been months. twelve previous the in woman cent of service users. also Thisfound study of cent users. service had that among a of sample just less GPs, that violence gender-based that said one-third per per cent ethnic of users minority of violence gender-based non-indigenous were services 15 per comprised women Traveller women. examined examined the of experiences gender-based violence among minority ethnic 13 that reports study This in women Ireland. living of all types, particularly for of and severe life- all particularly types, 1998). al, et (Greenfield violence threatening In Ireland, the Health Women’s Council Several international studies have found that that found have studies international Several minority ethnic women and women living in poverty are at higher risk for violence and and reduces the of likelihood perpetrators of treatment domestic violence completing 2007). Muftié, and (Bouffard it also increases the likelihood of it the also likelihood re-assault increases and 1990; (Hamberger Hastings, Gondolf 2001) Gondolf, and Jones 2001; White, and among intimate partners (Brown et al, 1998; 1998; al, et (Brown partners intimate among 2000), Feinerman, Brecklin, 2002; 1997; Schafer al, and et Fals-Stewart, Brookhoff 1997; complex, there are clear indications that alcohol alcohol that indications clear are there complex, use, heavy and particularly drinking and extent binge the complicates only not drinking, particularly women, against violence of nature Although the relationship between substance substance between relationship the Although use and domestic and sexual violence is 1990), 1990), a young older much is woman spouse her is if killed be actually to likely more 1995). al, et (Wilson her than 1988; Wilson et al, 1995). However, while et However, Wilson 1988; al, 1995). young men are in the general most violent Wilson, and (Daly class ‘age–sex’ of terms in UK the highest rates of both lethal and non- and lethal both of rates highest the UK by are experienced violence domestic lethal the youngest women (Daly and Wilson, 2009). 2009). Older women are more likely than (UN, carers their by abused be to men older evidence comparable have not do We 2006). the and Australia Canada, in but Ireland, for bracket to 6.91 in the 80+ age bracket (HSE, (HSE, bracket age 80+ the in 6.91 to bracket Whether Anyone was told about Partner’s Behaviour or Help Sought
49% 50% 43% 40% 33% 30% 22% 18% 17% 20% 16% 13% 10% 7% 7% 6% 6% 5% 4% 4% 4% 2%
0%
G.P. Work Nurse Friend Board A priest Bureau hospital A refuge A solicitor colleague A helpline A support The Gardaí Doctor in a Counsellor Told nobody Local Health organisation
Family member (marriage or other) Citizen’s Advice Somewhere else
Figure E* Source: Watson and Parsons, 2005. *Includes cases experiencing any severe abuse. Note that more than one person/organisation may have been told about the abuse and so percentages need not sum to 100.
to domestic violence are 15 times more likely research, the risk of ever having experienced domestic and sexual violence, taking the first to be physically abused and neglected than abuse is appreciably higher for women in steps to secure help – either a professional children without such exposure. Ireland who have children and slightly higher input or more informal support – can be for men who have children (Watson and enormously difficult. In some cases, it may The NSDA provides evidence with regard Parsons, 2005). Pregnancy has also been take years before a victim starts to challenge to some of the risk factors that are relevant highlighted as a time of risk for women in or question the abuse and violence and even in Ireland (Watson and Parsons, 2005). Ireland (Ryan, 2003). Moreover, children are longer before help is sought (Landenburger, The study finds that in the majority of cases, often present during domestic altercations. In 1989). For the victim-survivor, many abusive behaviours from partners tend to a study in Ireland (Kelleher et al, 1995) 64 per reasons can be involved. Feelings of start when the affected woman is quite young cent of abused women said that their children embarrassment and shame, fearing that the (Watson and Parsons, 2005). routinely witnessed the violence. In a survey abuse may not be taken seriously, or is too of GP waiting rooms, Stanko et al found that trivial to tell someone else, often result in Domestic and sexual violence are associated 64 per cent of women had children and 26 many not telling anybody, and this seems with poor health and disability in Ireland. per cent of these experienced abuse in the past to be particularly the case where sexual Among those with ongoing disabilities, the year. In fact 2 per cent of women surveyed in violence is involved (McGee et al, 2002). In odds of having experienced severe abuse are GP waiting rooms reported a miscarriage Ireland, of those who experienced instances 60 per cent higher than among those without they believed to have been caused by a violent of sexual abuse, nearly half (47 per cent) health problems (Watson and Parsons, 2005). partner (Stanko et al, 1998). had never told another person before being This study also shows that risk is substantially surveyed (McGee et al, 2002). For older higher where victims and survivors are people, in many instances the abuse may be isolated from close family and neighbourhood 2 5. Reporting and disclosing perpetrated by a close family member, and supports (see below). the violence older people may be fearful of destroying the relationship if the abuse is reported Reflecting findings from international Despite the very serious consequences of (Teaster et al, 2006).
[42] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [43]
Only 15 None of these of None Talked to person who who person to Talked abuse experienced more out find to Tried the about information situation who partner to Talked abusive was Gardaí the Told else someone Told 16 (McGee et al, 2002). al, et (McGee 17 nformal support: nformal 2 . 5 . common response was to talk to the abused abused to the to talk was response common and to (66 the perpetrator per cent) person 2005). Parsons, and (Watson cent) per (25 2 Immediate family all for and disclosure of point friends first the be to are likely most finds as in Ireland Research involved. those or or support organisation for help. a small proportion of either men women support approached or organisations or lines. help contacted assault, sexual adult of experiences Regarding cent per 8 nearly and men of cent per 1 only to experiences their reported had of women Gardaí the someone tell to reluctance this Furthermore, those to may happening also apply is to friends and abuse family who that aware become F, Figure from seen be can As them. to close was friend/family a that learned who those of most only being 8 abused, the per the cent while reported Gardaí, the to abuse domestic 25% helpline 14 17% 8% eporting: eporting: r 1 . 5 . were solicitors (16 per cent) and counsellors counsellors and cent) per (16 solicitors were (18 per cent). Fewer approached than a one Health Board, in ten experienced severe domestic abuse, over two- over abuse, domestic severe experienced until anyone did not tell (42 per cent) fifths began. a than more the behaviour after year of six in one over E, Figure in in a seen be can As confided abuse domestic by affected those nurse a in confiding 20 in one about with told eight GP, in one over Just doctor. hospital a or Gardaí of the a under A quarter little told a colleague. abuse work by affected severely those 2005). Parsons, and (Watson Among the other types of the most approached, consulted organisations frequently 2 shows that in general consistently Research domestic reporting and sexual violence to is For low. example, strikingly professionals generally do victims-survivors typically but not of abuse, report experiences initial their abuse related and/or assaults multiple suffer apply and/or authorities they contact before In et 2005). al, (Felson orders protection for who those of that reports NSDA the Ireland, 25% 40% 66%
0% Men are lessMen are likely than women to avail of counselling The patternwas similarfor child sexualabuse Apart from counsellors, men and women do not Former health boards noware incorporated into the 30% 20% 10% 50% 40% 70% 60% 80% What did the Person do about Abusive or Violent Behaviour? Violent or Abusive about do Person the did What (McGee et (McGee al, 2002). helplines. 16 (22 per cent versus 9 per cent). 17 15 differ significantly in terms of theprobability that they will approach support organisations or contact 14 HSE. Figure F Figure 2009. al, et Horgan Source: Likelihood of Respondents to intervene if a Friend, Neighbour or Friend neighbours or other family members may Stranger became a Victim of Domestic Abuse perceive the support that the person receives from the abuser as sometimes outweighing 100% 94% Stranger the seriousness of the abuse.
Recent research indicates that even when we 80% Neighbour consider domestic and sexual abuse to be a 65% serious problem, our willingness to help those 60% other than close family and friends may be adversely affected by a reluctance to become 38% 40% involved in private matters. The Survey on Perceptions and Beliefs of Domestic Abuse among the General Population of Ireland 20% (Cosc, 2009) finds that domestic abuse – involving physical and emotional abuse, rape 0% and sexual assault – is generally perceived as a crime in Ireland. While most respondents (94 Figure G per cent) were prepared to help a friend, fewer Source: Horgan et al, 2009. (65 per cent) said they would help a stranger and fewer again said they would help a neigh- bour (38 per cent) (see Figure G). Such a follows: In the mid-1990s women who had reluctance to help those beyond our inner circle reported experiencing domestic abuse were of friends and family underlines how dependent most likely to have disclosed to a friend (50 people can be on their closest and immediate per cent) or a relative (37 per cent) (Watson network ties. The next section explains, how- and Parsons, 2005). Of those who disclosed ever, that in some communities, discussing sexual violence to others, over half first told domestic and sexual violence can be more an immediate family member, with over a problematic than in others, further compound- quarter telling friends (McGee et al, 2002). ing the problem of isolation and vulnerability. The NSDA also highlights this point – most often a friend (49 per cent) or family member (43 per cent) is the first to be told about the 2 5. 3. Domestic and sexual problem (Watson and Parsons, 2005). violence and isolation in communities: Societal or public attitudes also play an important part in determining the extent As discussed earlier, physical and emotional of support a person can hope to receive. For isolation are among the most serious obstacles example, victim-blaming attitudes, general to securing help for victims of domestic misunderstandings about the causes and and sexual violence. Particularly where the effects of domestic and sexual violence, and perpetrator and victim live together, a pattern concerns about how cases will be handled of coercive control is typically established by professionals, i.e. that they will be taken by the perpetrator. This control pervades seriously and dealt with in confidence, all all areas of the victim’s life, from regulating underpin our thinking and beliefs around possessions, control over money and pensions, domestic and sexual violence. For dependent and control over access to employment, to older people, public attitudes may play an limiting contact with family and friends. This even greater role in determining the extent permeates the individual’s personal and social of support they receive, particularly where life, rendering visits to services of any kind for
[44] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [45] The costs are for England and Wales, centred on Thefor England costsare and This figureaims to cover domestic violence 18 2001. 19 experienced by persons aged 15-59 years. The cost of domestic violence reflects the enormous burden such violence places on both victims and the wider society.
18 (Hagemann- 19 he impact of violence: violence: of impact he t 6 . is indicative of the burden in financial terms. terms. financial in burden the of indicative is mind in bear to crucial is also it case, any In justice justice system, health £3.1 (including to mental health), amount social to services, housing, civil legal estimated been has study UK the services) on Based 2004). (Walby, billion the Council of Europe in 2006 estimated the per capita cost as €555 White et al, 2006). information Studies conducted in extensive provide not do Ireland violence, of aspects on domestic the various sexual violence or any the of between issue interaction the addressed has None two. the The above. of costs mentioned the broader however, UK, the for figure the of magnitude being subject to domestic and sexual violence. violence. sexual and domestic to subject being income Examples are services, legal the costs services, of crisis accommodation services, services. health/medical and support both on Theplaces cost of violence domestic reflects violence the such burden the enormous establish To society. wider the and victims violence, and sexual of domestic costs direct UK the to the extent are which services In used is an information. of source important the total annual cost of domestic violence services (direct costs include the criminal 2 and incurred costs financial lost opportunities is violence sexual and domestic of impact The fatal to minor relatively from ranging diverse, forthe both areconsequences There effects. victim and for individual the wider society. employers. of Domestic and violence drains the of resources services voluntary and public of costs the include costs financial direct The and resources a of range facilities, providing as services to a victims-survivors result of difficulty can arise, as the SAVI noted, report where symptoms of sexual abuse and assault to may be a attributed person’s overlooked. thus and disability,
difficult to communicate, or to be taken ifseriously they A do particular complain. of contacting people to report abuse. People People abuse. report to people contacting of with disabilities may feel disempowered may find it from making more complaints, Some Some people, for example disabilities, people may have means few with no if and any situation contacts domestic the outside makes it harder for them to seek explanations explanations seek to them for harder it makes help. for ask to or children children in all learn communities that the abuse in families is This that something is outside. or not home at either about, talked live nearby. Thus, because of the professional’s professional’s the of because Thus, nearby. live familiarity with both the abuser and the and their children victims-survivors victim, can be to In them. reluctant approach fact or to appropriate services. Often in a services. small or to appropriate would one that professionals the community could or well family the know may approach Living in rural communities brings additional additional brings communities rural in Living such as to access transportation difficulties, 2005). 2005). Similar problems are immigrant women 2005). faced from Parsons, and gender by (Watson unequal cultures relation relation to the wider community means that in women, order to are cope, strongly support mutual and on informal dependent from other women and (Watson Parsons, Traveller community (Watson and Parsons, Parsons, and (Watson community Traveller 2005). Belonging to a community where members experience certain barriers in of one’s own community. Barriers to talking to talking Barriers own community. of one’s present and violence sexual domestic about among disproportionately women in the acceptable, acceptable, challenging these and so doing will a entail high complicated norms is by members rejected of of being risk degree others. For example, in communities where in communities example, For others. the status of men is dominant or violence where against women is considered enormously difficult. difficult. enormously The strength of impact of this control is stronger in certain communities than in help help or advice regarding his/her situation that even within this limited approach, any 1996), and many studies suggest that these Children who witness violence assessment is likely to be an underestimate social and psychological impacts represent due to the fact that many victims never the highest proportion of indirect costs. in the home are at a higher risk present to services and that those who do Some argue further that these indirect costs of a whole range of emotional are often reluctant to disclose any abuse are often significantly higher than the direct they might be experiencing. costs to support services, communities and and behavioural problems, governments (e.g. Miller et al, 1996). In including anxiety, depression, Apart from the use of services, there is the UK the costs to victims in human and also lost economic output as a result of emotional terms have been estimated to be poor school performance, low the disruption of employment. Male and £17 bn per year (Walby, 2004). self-esteem, and sleeping and female victims of domestic violence have a more disrupted work history and this cost eating problems. is borne both by employers and by victims- 2 7. mmediate and long-term survivors themselves. Victims-survivors consequences of domestic violence are consequently on lower personal incomes, have had to change In general, abused women are more jobs more often and are employed to a likely to have poorer health than women greater extent in casual and part-time work who have never been abused (Garcia- (Pocock, 2003). The estimated loss to the Moreno et al, 2005) and may suffer health UK economy is reported to be in the order consequences of violence long after the of a further £2.7 billion, which is the cost of abuse has ended (Campbell, 2002). The time off work due to injuries. It is estimated physical health consequences include both that around half of the costs of such sickness injury and a broader range of impacts absences is borne by the employer and by such as poor nutritional, sexual (Golding, the individual in lost wages. Family and 1996), reproductive (WHO, 2000), and in the victim-survivor leaving the family friends may also experience absenteeism maternal health (Lathrop, 1998), including home. Moving from accommodation may through caring for the victim (or the increased risk of high blood pressure, risk impact on employment – while moving victim’s children) or by lending support to of miscarriage (Kishor and Johnson, 2004) may increase accommodation safety, the the victim or perpetrator at court hearings. and mental health problems including post- workplace is likely to remain known, and Employers lose profit as well as incurring traumatic stress disorder, depression (McGee may force the victim to leave the job for management and administrative costs et al, 2002) and suicide (Dutton et al, 2006). safety reasons. For victims-survivors, (Access Economics, 2004). Around the world, mental health problems, leaving may mean losing their only financial emotional distress, and suicidal behaviour are support, losing their children, and losing Apart from direct costs, indirect costs are common among women who have suffered their home and/or possessions. They may also incurred. Indirect costs are pre- domestic and sexual violence (Krug, 2007). also fear moving away from family, friends dominantly borne by individuals – mainly If these problems are not acknowledged and and their own communities and social victims and their families – and represent support not provided at an early stage, there networks. For older people, there is a fear the decrease in quality of life experienced can be prolonged consequences for the health of being placed in long-term institutional by individuals and their children, their and well-being of those affected. care in a nursing home, resulting in further community and society, as a result of loss of independence, loss of social contacts domestic violence and the restraints on From the perspective of the victim-survivor and reduced control over their own lives human potential and activities resulting of domestic and sexual violence, a serious and choices. from these forms of violence (Zuckerman source of stress and worry is to secure and Friedman, 1998). The indirect and and provide safety for oneself and one’s However, moving is often the only safe opportunity costs include the pain, fear, children. To this end, maintaining safe and option. The process of leaving may take suffering and loss borne by adults and secure accommodation can be an ongoing many months or years and, furthermore, children who live with domestic and sexual struggle. While all incidents of domestic it may involve leaving and returning violence (Laurence and Spalter-Roth, violence are traumatic, not all will result several times. In the short-term, victims
[46] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [47] mplications for policy and mplications for policy 8 . must consider must the consider needs of all victims and sexual physical, many, For victims. potential at lives their dominate abuse emotional known and often most is perpetrator the as home, or partner, or spouse their usually – them to for older a people, son or There daughter. is a heightened risk among some groups such women, as pregnant women, younger and women, disabled children, with women communities. marginalised from women and and sexual violence on their children and the consequences for their later children’s lives. Specific mention was made of from ofandabsenteeism effects disruption the interviews the in theme recurring A school. was the differingeffects and consequences that domestic abuse can have for children. These discussions centred around abuse of effects the domestic areas: general four upon children, the that complications can occur with refuge use when children need their of have women fear the for, cared be to fear and the care, into taken being children of losing legal custody 2005). of Parsons, and their (Watson children 2 service planning affects and sexual violence domestic While men and people of women, all ages, socio- backgrounds, cultural and groups economic violence of problem a predominantly is it and planning service and policy women, against The links between domestic violence and possible physical harm to children other and related adversities to are be beginning documented in et al, 2006; Ireland Holt et al, 2008). In (Buckley order to explore the issues experienced by women in marginalised communities, and Parsons Watson (2005) report from the results focus marginalised groups women (from the Traveller undertaken community with and The women immigrant interviewed reported women). being concerned about the impact of domestic
20 educational progress, the effect progress, cumulative educational of which may be carried into 1989). Lindquist, and adulthood (Fantuzzo impact impact extends to their health and well- witness who Children ways. in being many in at are a home ofthe risk higher violence behavioural and emotional of range whole a problems, including anxiety, depression, poor school low performance, self-esteem, and sleeping and eating problems (Hague are Children 2002). et al, Riger 1996; et al, likely to be affectedby disruption the fear, and distress in their lives (Kitzmann al, et 2003). Growing up with violence and abuse in the home environment critically threatens children’s personal, social and As regards children As in children regards the violent families, For For those victims homelessness with may occur. Remaining little safe support, from domestic violence may ‘disappearing’, necessitate severing not lives but only that of their their children from community the in which they have lived. In the UK, on average, between 10 per cent and 25 per cent each of homeless as the acknowledged total households number of are who women are authorities local by year violence. of domestic result a as homeless The process and cost of setting up a new home can be significant, with of pressures Theusual enormous difficulties. practical a new home – establishing suitable finding accommodation, furnishing books, providing school, new a it, into children settling uniform, etc. – are all an exacerbated from where escape of tension added the is there safety. about worry and relationship abusive For older outside people, lives their the ending of option fear the of presents moving care. long-term in home own their may may stay somewhere such as a refuge or other temporary and accommodation this may be done several times. In the process, employment, social lives disjointed and disrupted, become opportunities education and jeopardised (Kolbo et al, 1996). The PolicyThe Press, 2003. See ODPM, Quarterly returns, cited in C. Davis, Leaving Domestic Violence: New Challenges New Leaving and Violence: Domestic Good practice, 20 AssociationsHousing – Re-housingWomen must consider the needs of all victims and potential victims. Policy and service planning A key to organisations working of implementing a range of measures such 2 9. Conclusion as routine enquiry, risk assessment and together in this way, to protect signposting, to enable the detection and Chapter One opened with a description domestic and sexual victims- appropriate referral of individuals as they of the experiences of individual victims- come to light at various points throughout survivors – Jenny, Anna, Joe, Norah, Helen survivors, is to develop good the State and non-State system. Such and Denise. It is important to remember practice in relation to data- measures would help to identify domestic that the statistics represent real people. It and/or sexual violence cases at the early is equally important to examine and study gathering and information- stages as well as those presenting with long- robust research on the lives of real people sharing. It is also important term consequences. in order to build a scientific picture of domestic and sexual violence. The strategy that reliable information is Research on the costs of domestic and has been developed using an evidence- used for the development and sexual violence leaves no doubt that these based approach while respecting the human problems undermine human and economic voices behind the statistics. implementation of policies progress. There is a range of health, and services. legal, economic, social and human rights This chapter set out the key characteristics consequences. The negative effects of these of the problem of domestic and sexual forms of violence on victims, particularly violence, considering prevalence, risk on the potential opportunities for children, factors, impact and consequences, reporting are enduring and require more than a once- and disclosure and the overall implications off intervention. A strategy is required of the characteristics for the development that operates across a broad range of areas, of solutions. It provided a general picture having regard to the inputs that are necessary of the complex problem of domestic and to rebuild the lives of victims-survivors sexual violence – a multi-dimensional These characteristics suggest key areas of including economic, accommodation, problem requiring multi-sectoral and intervention for addressing domestic and health/medical, legal and many other areas. multi-disciplinary solutions. sexual violence in Ireland. The first of these Providing victims-survivors with access to relates to the need to stem the occurrence or wide-ranging services emphasises the need With the echoes of the voices of the incidence of domestic and sexual violence for co-ordinating and integrating policy victims/survivors fresh in our minds, in Ireland. Primary prevention measures responses, enhancing partnerships between we recognise the importance of primary that develop and strengthen people’s stakeholders, setting up mechanisms for prevention measures that increase people’s understanding of the nature of domestic monitoring and evaluating programmes and understanding of domestic, sexual and and sexual violence are vital, particularly policies, and reforming and implementing gender-based violence, particularly among among high-risk groups. existing legislation. high-risk groups. We know that, given the prevalence of this violence, services are A second area relates to providing protection A key to organisations working together encountering such voices on a frequent basis and support to all those who have been in this way, to protect domestic and sexual but that particular service interventions are affected by domestic and sexual violence. victims-survivors, is to develop good needed to encourage and support disclosure Incidents of domestic and sexual violence practice in relation to data-gathering and and safety. in Ireland are very prevalent, implying that information-sharing. It is also important the range of services serving these groups is that reliable information is used for the The following chapter provides an overview very likely to encounter them on a routine development and implementation of of the current context of the response basis. However, the evidence shows that policies and services. Understanding the or solution landscape in Ireland. An victims are not reporting or disclosing and problem is the first step, but recognising understanding of this landscape is critical that their trauma is not being adequately successful and unsuccessful interventions to the identification of improvements and identified by key services. It is important is also important in ensuring that meaningful solutions. Further chapters set that victims-survivors are provided with domestic and sexual violence is addressed out the actions to be taken to implement adequate protection. Hence the importance effectively. these solutions.
[48] INTRODUCTION CHAPTER 1 CHAPTER 2 CHAPTER 3 CHAPTER 4 CHAPTER 5 CHAPTER 6 CHAPTER 7 NS IO NT VE R E NT I D NT LAN hree E T E R RR I U N Chapter C I Chapter Three Current interventions in Ireland
The overall aim of the 3 1. ntroduction in 1995 suggested that up to 75 per cent of attackers were known to the woman Government decision – the Chapter Two presented a broad under- concerned. Garda figures showed that, in enhanced leadership and co- standing of domestic, sexual and gender- 1994, the proportion of cases reported to based violence. It showed that it is a them which resulted in convictions was ordination of the State response multi-dimensional problem, requiring approximately 19 per cent. to these crimes – requires multi-sectoral and multi-disciplinary solutions. There are barriers to recognising In 1996, in recognition of the growing major national, organisational and understanding the issues, and concern about these crimes, the Government and individual change. difficulties with accessing help. set up the Task Force on Violence against Women. The purpose of the Task Force Before deciding on a response to the was to develop a co-ordinated response and problems identified in Chapters One and strategy on the problem of mental, physical Two, it is necessary to understand the and sexual violence against women – with a complexity of the current intervention particular focus on domestic violence. The context and to appreciate the current level Task Force report was published in April of co-ordination between organisations 1997 and concluded that there was a clear working to prevent and respond to this need to improve services. The report pre- violence. Such information helps in sented short-term and long-term understanding the current ‘system’ and the recommendations, including the setting key problems to be addressed to achieve the up of a National Steering Committee on vision of the strategy. Violence against Women (NSC) to co- ordinate services and policies at national This chapter sets out a brief overview of the level. Services were then, and continue to existing response in Ireland. It is not inten- be, provided through several government ded as a comprehensive report on the current departments, State agencies and non- services but it provides a broad illustration of governmental organisations. The NSC the nature and range of services delivered by was established by the Government in State and non-governmental organisations. 1997 to oversee national, regional and local It explores the challenges to ‘joining it all up’ activity and to provide a multi-disciplinary and sets the scene for the actions to be taken supportive and planning role. in the strategy. Following publication of the Task Force report, progress was made in the develop- 3 2. background ment of services and in the enactment of necessary civil and criminal legislation. The past two decades have seen an Civil law remedies were provided for by the increasing understanding of the extent and Domestic Violence Acts 1996 and 2002, impact of domestic and sexual violence. and the criminal law was strengthened by In the early 1990s a number of reports the Non-Fatal Offences against the Person highlighted the widespread incidence of Act 1997 which allows for the prosecution violence against women and its prevalence of domestic violence incidents including in all social classes and regions. A Women’s stalking and harassment. Aid study in the 1990s contributed significantly to raising awareness of the Notwithstanding the extent of services scale of the problem of domestic violence and activity in response to domestic and in Ireland (Kelleher et al, 1995). Cases sexual violence as Ireland moved into the reported to the Dublin Rape Crisis Centre new millennium, it was clear that problems
[50] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [51] that they are fully aware of the best methods of dealing with such tragic cases; change at societal level so that all people in Ireland would recognise the unacceptability and criminality of domestic and sexual abuse; and change at national policy level so that countrywide action directly by the State and via NGOs would be clear, consistent and coherent in order to produce the most effective response at best public value. It was clear that there was a need for change: change at organisational level for those organisations involved in tackling domestic and sexual violence; change at individual level for the relevant employees of those organisations to ensure
women, men and older people living in living the people men and older women, Cosc works closely with State community. which NGOs as as with well organisations according according to known best Change practice. of this magnitude entails careful planning undertaking. is a long-term and As a result of the Government Preven- decision, the for Office National – the Cosc Gender-based and Sexual Domestic, of tion It 2007. June in established was – Violence is an executive office of the Department ofEquality and Justice, Law with Reform, the key priority to ensure and effective co-ordinated whole-of-government action on domestic and sexual violence against the whole of government. whole the The overall aim decision – of the enhanced leadership the and co-ordination Government of the State these response crimes to – requires major organisational national, and The individual new office would change. responsible be for refocusing efforts and raising the quality of response, for ensuring that the policies and actions of complementary and that the best possible each organisation result are is being achieved and monitored combat combat violence against women and, that in context, a primary action was to be the establishment of an ‘Executive Office under the aegis of Justice, the Equality Department of and ensure Law delivery Reform of a to response to whole-of-government violence well co-ordinated, The violence’. domestic and women against Government decided that the executive office should establishedbe Department within of Justice, Equality the and Law Reform, but gave the officeauthority and across co-ordination drive to responsibility and coherent in order to produce the most most the into produce order and coherent value. public at best response effective 2007 In March approved the Government the National Women’s Strategy 2016. 2007- This included commitment a to
The establishment of clear budget Co-ordination Co-ordination of decisions on Co-ordination of assessment of Increased information on funding
lines lines for addressing violence against women across relevant departments. government » availability and levels » service delivery and funding and delivery service » plans and needs service » countrywide countrywide action directly by the State and via NGOs would be consistent clear, would would recognise the unacceptability and criminality of domestic and sexual abuse; and change at national policy level so that are are fully aware of the dealing best with such methods tragic cases; of change at societal level so that all people in Ireland domestic domestic and sexual violence; change at individual level for the relevant employees of those organisations to ensure that they It It was clear that there change: change was at organisational a level for need for those organisations involved in tackling committee of the NSC recommended: recommended: NSC of the committee funding needs of the violence against women women against violence the of needs funding sector, the resources currently and available the co-ordination of funding across Thesub- departments. inter-departmental During During the intervening period, represent- atives of government departments on the NSC had also been asked to examine the commitment commitment to the co-ordination of the strengthened. be sector work work on the development of a Strategic Plan. Thework led to a recommendation in December 2006 that the Government’s The NSC recognised that there was a need need a was there that recognised NSC The to plan strategically and in 2003 began the the activity was, to a great extent, carried being out and organisations may have been counter- independently victims. for ofconfusing and productive other persisted. Although much was Although being done, persisted. support victims of domestic and sexual The Elder Abuse National Implementation The Office for Older People and violence and treat perpetrators. This work Group (EANIG) was established in includes the following tasks: 2003 by the Minister for Health and the HSE are actively seeking to Children to oversee the implementation progress the implementation » Developing strategies for preventing of the recommendations of Protecting Our and dealing with these crimes in line Future. Since then structures and systems of the recommendations of with best international practice have been put in place in the health sector the review, beginning with » Further developing standards to progress the recommendations of for service delivery and for training Protecting Our Future. This has included strengthening the institutional programmes the establishment of dedicated elder abuse arrangements. » Putting in place positive actions structures and the development of the which work with perpetrators HSE’s elder abuse database. » Facilitating the implementation of internationally established best practice A review of the implementation of throughout the sector Protecting Our Future was carried out in » Working with relevant bodies to 2009 by PA Consulting from which put together a body of research that institutional abuse and financial abuse will inform future policy directions have emerged as areas of concern. The » Raising awareness about the level Office for Older People and the HSE and impact of these crimes and of local are actively seeking to progress the services that are available for victims implementation of the recommendations » Representing Ireland at inter- of the review, beginning with strength- national fora ening the institutional arrangements. » Proposing legislative and policy Activity indicators for the elder abuse change. service will be included in the HSE 2010 Service Plan. Current policy to address and prevent elder abuse derives from the report of the The following sections outline the services » The Department of the Environ- Working Group on Elder Abuse, Protecting provided by State bodies and NGOs. The ment, Heritage and Local Government Our Future (Department of Health and final section of this chapter shows the » The Legal Aid Board Children, 2002). The report identified challenges to co-ordinated activity and » An Garda Síochána six types of elder abuse: physical, sexual, sets the scene for the actions to be taken » The Office of the Director of Public psychological, financial/material, neglect/ over the five-year period of the strategy. Prosecutions action of omission, and discriminatory. » The Courts Service While the report excluded self-neglect » The Probation Service from its definition of abuse, self-neglect 3 3. services provided by State » The Irish Prison Service was cited as the main type of abuse in 20 organisations » Victims of Crime Office per cent of cases reported to the HSE » Cosc elder abuse service in 2008. The report There are many State organisations » The Central Statistics Office (CSO) defined elder abuse as ‘a single or repeated involved in providing services to those » The Department of Justice, Equality act, or lack of appropriate action, occurring affected by domestic and sexual violence. and Law Reform within any relationship where there is an The State organisations directly and » The Family Support Agency expectation of trust which causes harm indirectly involved include the following: » The Department of Social and or distress to an older person or violates Family Affairs his/her human rights.’ It made a number » The Health Service Executive » The Department of Education and of recommendations in relation to tackling » The Department of Health and Science elder abuse in the health and non-health Children » The Department of Community, sectors. » Local authorities Rural and Gaeltacht Affairs.
[52] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [53]
by 21 An An Garda Síochána are members of the NSC. At regional level the organisation has participated in the former Regional Planning Committees, currently partici- pate in Regional Advisory and Committees are also involved in some local-level (LAN)Local Network Area activity. Currently no figuressituations are where available the abuse for an suffered individual by who has been of the domestic victim violence has prosecution resulted for in a criminal a offence. are Nor figures available for the levelof Garda activity responding to domestic violence incidents which do not result in a formal crime report. Nevertheless, relation to breaches figuresof domestic violence in orders provide some indication of Garda activity in this area. In terms violence of court orders, the CSO breaches incidents reports of recorded and domestic detected Likewise all Gardaí are trained to properly properly to trained Likewiseare all Gardaí investigate sexual offences. TheDVSAIU conducts and pro- and investigations sensitive or complex co-ordinates the vides more advice and operational assistance to investigations. such in involved Gardaí local Specialist victim interviewers are available throughout the State to conduct witness interviews with (mainly child) victims of offences. violence-related or sexual In terms activity in the sector, at a of national level co-ordination-related result in criminal court proceedings and convictions. For the years 2003 to 2007, detection rates were almost 100 per cent. The share of recorded breachthat incidents proceeded to court exceeded the 85 per cent level in each year between 2003 and Expressed 2007. as a share of relevant court proceedings, the rate of conviction ranged from 34 per cent (2007) to 37 per cent (2003). An An Garda Síochána, and those which he justice sector justice he t 1 . 3 . is is also a Garda Inspector nominated each Garda Division to in ensure the proper policy. the of implementation violence and must do so in accordance with with accordance in so do must and violence the Garda Síochána Policy on Domestic Violence Intervention. This policy introduced in was 1994 and was reviewed as in approach the specifies It 2007. and 1997 pro-arrest where an Sexual offence arrestable has and Violence Domestic The occurred. Assault Investigation Unit (DVSAIU) is the national unit with responsibility for developing and implementing that policy Garda the monitoring and co-ordinating by Síochána response to domestic violence incidents throughout the State. There sexual violence. violence. sexual The following sections outline the work of key organisations in the and State indicate the sector recorded level of activity specifically associated with domestic and violence. sexual 3 Síochána Garda An domestic with deal to trained are Gardaí All within within the child welfare and and family protection support sectors, and accomm- odation provided by local authorities, to legal advice and assistance on criminal civil matters, and criminal management investigation, offender and prosecution and are organisations State sector. justice the in also in involved the of development policy by affected those on impacts indirectly that domestic and sexual violence. The nature of their involvement is influenced by explicitly remit the overall their which to extent includes those affected by domestic and The direct services provided services from range organisations provided by these personnel medical practitioners, by general in Accident and Emergency Departments and Sexual Assault counselling (SATUs), and family services Treatment Units In terms In of breaches of domestic violence court orders, information becomes available and this will also be entered into PULSE. soon after the incident becomes known to a member Síochána.of crimesGarda An Recorded followedare by an investigation or detection, during which more court proceedings and convictions. A criminal offence isat the recorded time it is entered on the PULSE system. the vastIn majority of cases this happens very 21 the CSO reports incidents and detected recorded by Síochána Garda andAn those which result in criminal the Garda Síochána Policy on DomesticViolence Intervention. with domestic violence and must do so in accordance with All Gardaí are trained to deal The Director may advise 1,407 cases of sexual offences were recorded by Garda Síochána in relation to summary cases An Garda Síochána in 2008, a reduction of 29 and gives specific directions in such cases as investigators in relation to per cent from the number recorded in 2003. specified in General Direction Number 2 the sufficiency of evidence to Apart from a slight increase between 2004 and (this includes all cases of a sexual nature). 2005, the numbers of offences recorded were support nominated charges declining between 2003 and 2007, but they The Chief Prosecution Solicitor is the and the appropriateness of increased slightly, by 3 per cent, between 2007 Director’s principal solicitor and acts on and 2008. In 2003, 62 per cent of the sexual behalf of the Director in courts in Dublin. charges or in relation to legal offences recorded were detected. In 2007, 55 The 32 State Solicitors, engaged on a issues arising in the course of per cent were detected. Of the total number contract basis, provide a solicitor service to of 1,986 sexual offences recorded in 2003, 478 the Director in all Circuit Courts and some investigation. offences led to convictions before October District Court matters outside Dublin. 2008. This is a conviction rate of 24 per cent relative to the number of recorded offences The DPP prosecutes all serious crimes and and a conviction rate of 61 per cent relative to sometimes less serious crimes. The most the offences with ‘relevant court proceedings serious cases are heard before a jury in the commenced’. These figures cannot easily Circuit Court or the Central Criminal Court be compared with figures for later years as or without a jury in the Special Criminal incidents (cases) may take a period of months Court. or years before they are concluded and closed. The Gardaí may prosecute less serious The Office of the Director of Public crimes. However, the prosecution is still Prosecutions taken in the name of the DPP and the DPP The investigation and prosecution of offences retains the right to direct the Gardaí as to are separate and distinct functions within how to deal with a particular case. the criminal justice system. The Office of the Director of Public Prosecutions (ODPP) The total number of files relating to sexual was established by the Prosecution of offences received by the Office of the DPP Offences Act 1974. The Director of Public from 2000 to October 2008 was: Prosecutions (DPP) as a general rule has no investigative function and no power to direct 2000 – 934 An Garda Síochána or other agencies in 2001 – 898 their investigations. The Director may advise 2002 – 998 investigators in relation to the sufficiency 2003 – 1,083 of evidence to support nominated charges 2004 – 995 and the appropriateness of charges or in 2005 – 1,055 relation to legal issues arising in the course 2006 – 1,084 of investigation. While the DPP is not 2007 – 997 responsible for the conduct of investigations, 2008 – 79922 he is free to indicate what evidence would be Source: ODPP, 2009 required to sustain a prosecution. For reasons of classification the number of The DPP is independent in the performance files received by the ODPP in respect of of his functions. He enforces the criminal domestic violence is not available. law in the courts on behalf of the people of Ireland; directs and supervises public The Courts Service and 22 A new case management system was installed in prosecutions on indictment in the courts; the Legal Aid Board October 2008. and gives general direction and advice to An Neither the Courts Service nor the Legal
[54] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [55] a national Prisoners, Risk and Resettlement Resettlement and Risk Prisoners, a national Region was of established. The development the for region responsibility overall has and community the in both practice, offenders. effective sex of management the in prison, in with linkages strategic forming includes commissioned This Service The agencies. key other and Dr Dr Quayle Ethel Seán Hammond, Dept of Applied best Psychology, a for staffto UCC, manual promote produce to orders, orders, from prison into the community and within Thatboth. now office manages relevant data on In those 2004 the Service supervision. Probation offenders under put in place a set of internal to protocols ensure the supervision its effectiveunder management by offenders sex of the Service signed Service The release. on and custody in for Board Probation the with an agreement in Ireland Northern 2006, to the facilitate ofmore supervision effective sex offenders jurisdictions. two the between moving 2007, in restructuring Service’s the of part As The Probation Service has taken specific and progressive steps to ensure best practice in its management of sex offenders. Office was established in 2002. Its purpose Itspurpose in 2002. wasestablished Office is to track the of movement sex offenders, supervision post-custody or direct to subject assault assault and incest, where sexual history is Aid Legal the 2007 In question. into called in proceedings in court was involved Board almost 1,000 cases where domestic abuse issue. an was TheProbation Service Since the enactment of the Sex Offender Service has Act taken the 2001, Probation best ensure to steps progressive and specific offenders. sex of management its in practice The National Sex Offender Management The Legal Aid Board is responsible for the forthe TheAidis Board Legal responsible matters on advice and aid of legal provision of civil law to to unable persons fund such vast The own resources. their from services majority of the Legal Aid Board’s activity is in family law/ civil matters, including legal representation to those been who affected have by domestic violence. The Board also provides legal aid or advice to a complainant in certain for a prosecution criminal involving range of sexual cases offences, including rape, aggravated sexual declining number declining of for court applications propensity the that is noteworthy It orders. of to the all courts grant types of domestic at stable has orders been relatively violence period. the over cent per 60 cases 78 2008, in courts, criminal regards As and received were assault sexual and rape of 72 disposed of in the During Court. that 2,017 same Central cases year, Criminal relating to sexual offences were disposed of at District Court level (Source: Courts 2008). Report, Annual Service is clear that the decline in domestic violence violence domestic in decline the that clear is orders granted is mainly explained by the made. applications of number the in change A Table in Appendix 2 shows that of the 1,864 fewer orders granted in the period, the from arose of these per cent) (80 1,486
number of orders granted declined by 23 per per 23 by declined granted orders of number it arethe differentiated, effects When cent. In 2008, 6,153 domestic violence orders were were orders violence domestic 6,153 2008, In the 2008 and 2001 between Overall, granted. for short-term orders. It is not clear whether whether clear not is It orders. short-term for practice court or methodology in differences development. atypical this underlie The data show enormous jumps number in and share of the refused applications in 2008 for orders long-term and in 2007 from from 12,795 to 9,573; 11,394 applications for protective orders were made 2008. in in made were 2007 applications 10,401 and applications applications for domestic violence orders between 2001 and 2008 follows no clear trend. The overall sum 2005 and 2001 between a decline indicates of applications The Courts Service data refer to processing processing to refer data Service Courts The applications for domestic violence orders. The change in the total number of and and confusion for both service providers users. service and the the effective processing of cases in result referrals through Inappropriate system. the expectations unrealistic procedures, delayed standardised across all regions. The effective effective The regions. all across standardised referral of domestic and sexual victims violence from organisations operating in the for sector has repercussions significant of the main challenges faced by of faced the Courts the main challenges Service is to ensure that provided to the applicants assistance is consistent and Additionally, if clients are unable to Additionally, afford of the them inform to is it policy a solicitor One Board. Aid Legal the by offered services people on a daily basis in relation to domestic domestic to relation in basis daily a on people assistance provide will it while and violence, it cannot provide advice to these people. victims and aggressors of domestic violence. violence. domestic of aggressors and victims The Courts Service meets and interviews in in relation to domestic or sexual violence. Each of seeks to these retain organisations strict impartiality, aiming both to service to objective and comprehensive provide a Aid Aid Board has a formal policy document professional practice in the supervision of sex by sex offenders. The system involves the In conjunction with An Garda offenders. Training in the manual’s use was use of two assessment instruments, Risk rolled out to all staff in 2007 and 2008 to Matrix 2000 (Static/Actuarial) and Stable Síochána, the Probation ensure effective implementation. and Acute 2007 (Dynamic). This model is Service has begun a process of currently being piloted in Northern Ireland, Similarly, in 2007, under the re-structuring in Scotland and in some other areas of the introducing, at a national level, of the Probation Service, and within the UK. There has been joint training with a system for assessing and Prisoners, Risk and Resettlement Region, colleagues in Scotland and joint training the High Risk Offender Management Team with Garda personnel in Risk Matrix 2000. managing risk posed by sex was established. Its brief is to contribute Ultimately it is intended to validate the use of offenders. to policy developments in relation to sex the instruments on an all-Ireland basis. offenders and high-risk offenders and to develop good practice models for managing The major advantages of using a common offenders who pose particular concerns in risk assessment instrument by the different relation to public safety. criminal justice agencies within and across jurisdictions are: As part of the Homeless Agency’s Care and Case Management structure, a thematic » It gives us a common language with sub-group on homeless sex offenders is in which to speak when we talk about the place. This group, chaired by the Probation risk posed by a particular sex offender Service, is known as the Multi-Agency » It clarifies that not all sex offenders Group on Homeless Sex Offenders (MAG). pose a high risk, thus allowing the It has twelve statutory and voluntary agencies agencies to concentrate resources on represented and has secured funding from those who most require them. the Department of Justice, Equality and Law the course of their attendance, and undergo Reform to employ a Policy Development In 2002 the Probation Service, in partner- actuarial risk assessment. and Implementation Officer. MAG is ship with the Granada Institute, established preparing an Implementation Plan which The Lighthouse Programme. The Light- The Probation Service also works with will facilitate a multi-agency approach to sex house Programme is a community-based perpetrators of Domestic Violence who offender accommodation. programme which provides individual have been before the criminal courts on and group-based psychotherapeutic inter- offences such as breach of a barring/ The Probation Service, the Irish Prison ventions to individuals convicted of sexual protection order, or assault of a spouse or Service, Business in the Community offences to enable them to live offence- partner. The Service has taken specific and (Linkage) and FÁS have agreed a process to free lives. The objective of the programme progressive steps to ensure best practice respond to the work and training needs of is the protection of victims from further in its management of perpetrators of sex offenders. It is anticipated that this will assault by reducing the risk of recidivism domestic violence cases. come into effect from the second quarter of by the perpetrators. This is in line with 2010. Close working relationships have been the mission of the Probation Service and The Service revised its policy and developed with the Garda Domestic Violence the Granada Institute which is to bring procedures in 2009 and has provided and Sexual Assault Unit, and with the about safer communities through respect, agreed ‘Protocols for Practice’ in relation NBCI, with ongoing work being undertaken accountability, restoration and social to the assessment and management to advance effective joint risk assessment and inclusion. The Lighthouse Programme of perpetrators of domestic violence risk management arrangements. currently provides assessment and treatment in the community. The protocols will programmes in Dublin and Cork, principally have the dual functions of ensuring that In conjunction with An Garda Síochána, in a group setting, but also where needed perpetrators are held accountable and have the Probation Service has begun a process on an individual basis. Those attending the opportunity to change their abusive/ of introducing, at a national level, a system are assessed before and after treatment, are violent behaviours and that victims are for assessing and managing risk posed reviewed with their Probation Officers in safeguarded. In addition, the policy
[56] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [57] he health sector sector health he t 2 . 3 . the the HSE funds directly a range significant of voluntary sector service provision. For it example, funds 20 Refuges, 25 Support nationally Centres Crisis Rape 16 Services, Women’s of Network National the as well as (NNWRSS Services Support and Refuges Crisis Rape the and Ireland) Safe as known Network of Ireland (RCNI). The funding total allocation from the HSE to the million. €20.5 is sector through through its primary care services manages and the hospital significantof impact domestic and sexual violence health and on well-being of its the victims. HSE staff and allied health professionals, e.g. Primary Care Teams, Practice General Nurses, Practitioners, Family Workers, Support Social Workers, Community Welfare Officers, Public Health Nurses, etc., provide a range of services to women and children and from burden health The violence. families domestic experiencing violence against women aged 15-44 years is to considered be to comparable diseases such as HIV, tuberculosis, cardiovascular disease cancer (Heise et al, 1994). and There is only limited Irish data available for health costs in relation and to sexual domestic violence. This and mechanisms collection data is inadequate because of personal hidden estimating in difficulty the costs. social and As part of response to the domestic and sexual violence, continuum of service based agencies, in supporting convicted sex sex convicted supporting in agencies, based reduce and society into resettle to offenders the risk of further Itoffending. builds on themes developed of Management in ‘The Document the Discussion Department’s and Sex willOffenders’ be consistent with recommendations that emerge from the document. that on consultation on-going 3 The Health Service Executive (HSE) The transfer of offenders into and The establishment of a Sex on emphasis the Greater transition Greater Greater emphasis on individual The establishment of a National The accommodation of sex New New initiatives to increase the
from prison to community. community. to prison from (the Midlands and Wheatfield Prisons) Prisons) Wheatfield and Midlands (the interventions of range narrower a where available be will » accordance in Centre National the of out with sentence planning, demand imperatives security for and interventions » Offender Unit in the Prison Service Headquarters to monitor and liaise planning with criminal other sentence agencies justice » participation participation rates and 5 Chapter in described are these – effectiveness » assessments and integrated sentence planning and on with offenders higher profiles risk and need » Centre at Arbour Hill a Prison full with range of interventions of offenders sex number in the increase and an prison the in accommodated » offendersalso in two Satellite Centres » range and availability of therapeutic interventions in prison and increase a a joined-up approach by the Irish Prison Service, the Probation community- with Service working Síochána, Garda and An The policy seeks to enhance public safety by safety public enhance to seeks policy The offenders sex prison, in while that, ensuring interventions therapeutic in participate will relevant to their needs and designed to as ensure, far as risks. that possible, It is higher risk sex offenders will not simply serve engaging without out their sentences services. relevant with Thepolicy forms an partintegral of wider to designed ensure policies justice criminal The main innovations inthe prison policy are: offenders’ livesthat reduce the riskof re- offending and enhance public protection. OffenderPolicyManagement – Reducing Re-offending, Enhancing Public Safety, is aimed at bringing about changes in In In 2009 the Prison Servicea new introduced policy for the Sex managemententitled policy, of The prison. sex in offenders intervention on high-risk perpetrators. perpetrators. high-risk on intervention IrishPrisonThe Service violence perpetrators. SARA will underpin will underpin SARA perpetrators. violence accurate assessment and intervention and facilitate the focusing of higher levels of The Probation introducing a Service structured risk assessment is process, domestic currently the with use for (SARA), Assessment Spousal Assault Risk domestic violence arises in all aspects of working with service users. document will increase the understanding and capacity of intervene all appropriately when the issue of probation staff to resettle into society and reduce the risk of further offending. based agencies, in supporting convicted sex offenders to ServiceAn Gardaand Síochána, working with community- joined-up approach by the Irish Prison Service, the Probation part of wider criminal justice policies designed to ensure a The policy forms an integral Senior Case Workers for Elder The HSE has developed a policy on received in 2007. On investigation, 35 per domestic and sexual violence and is in the cent were substantiated, 23 per cent were Abuse are employed within process of developing an implementation not substantiated and 42 per cent were local health offices. They plan for this. Key actions in the HSE policy inconclusive (HSE, 2009). dove-tail with the actions within the Cosc assess and manage cases of national strategy. Under the Child Care Act 1991 the HSE suspected abuse referred has a statutory duty to promote the welfare In 2008 the HSE published the policy of children who are not receiving adequate to the HSE. document Responding to Allegations of care and attention. In line with this duty Elder Abuse, which was developed on foot of the HSE provides a wide range of child and recommendations outlined in Protecting Our family services nationally. Child protection Future: Report of the Working Group on and social work services are in place to Elder Abuse (DHC, 2002). Structures and provide front-line response to children systems have been put in place in the health who are not receiving adequate care and sector to progress the recommendations of protection. Other services provided include Protecting Our Future. This has included early years services, family support services, the establishment of dedicated elder abuse alternative care (foster/relative care and structures and the development of the residential care) and services for homeless HSE’s unified elder abuse database. youth, etc. The protection of children is the primary concern for the HSE’s children and In October 2007 the HSE set up a National family services. As set out in the Child Care Elder Abuse Steering Committee and four Act 1991, the HSE regards ‘the welfare Area Steering Groups with multi-agency of the child as the first and paramount representation. The National Elder Abuse consideration’. In the assessment of any Steering Committee was set up to ‘oversee risk to a child consideration should also and ensure a nationally consistent approach be given to family circumstances and the in the provision of elder abuse services overall safety and security of the family. by the HSE in relation to its detection, reporting and response’ (HSE, 2009). The Additionally, the HSE has issued guidelines Committee is multi-disciplinary and multi- for the referral, forensic examination and agency, and includes a representative of support of victims of alleged rape and sexual Cosc. Each administrative area has approval assault. These guidelines were developed to to appoint a Dedicated Officer for Elder facilitate a high-quality service provision Abuse (DEAO). The DEAOs work with all and to enable the HSE and the criminal relevant stakeholders, and are responsible justice system to develop the infrastructure for the development, implementation and required for the delivery of an appropriate, evaluation of the HSE’s response to elder integrated, inter-agency response and care abuse. They also support other agencies to at a local, regional and national level. develop policies and guidelines in relation to elder abuse. Sexual Assault Treatment Units (SATUs), normally based in a clinical/hospital Senior Case Workers for Elder Abuse setting, offer services to any victim of an are employed within local health offices. alleged rape/assault. Examples of services They assess and manage cases of suspected they provide include: forensic medical abuse referred to the HSE, working within examination of recent victims of sexual the framework of existing policies and violence/assault,23 treatment for sexually 23 Such an examination is necessary if the case is to be legislation. The HSE reports that 927 transmitted infections (STI) where processed by the criminal justice system. referrals of allegations of elder abuse were possible, and referral for STI screening
[58] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [59]
Department Dept andof Children. Health Sexual Assault Treatment Services Sexual – Treatment Assault The Way Home: A Strategy to Address Adult StrategyAddress A Home: to Way The O’Shea, 24 Review, A National 25 Homelessness in (2008 Ireland 2013), of the Environment, Heritage and Local Government, August 2008. among specific in groups, e.g. relation to family problems. A PriorityAction has been developed in the Implementation Plan for the Homeless Strategy to co- ordinate the provision of guidance and monitor actions on issues relevant to the occurrence of homelessness
25 ocal ocal L eritage eritage and H he he Department of the Have Have accessed child abuse images of risk at be to themselves Consider t
3 sexually offending against children. children. against offending sexually there are concerns about aspects of their their of aspects about concerns are there children; to relation in behaviour sexual and/or » and/or Internet; the on » . 3 overnment . homelessness caused by homelessness violence, domestic by work including Cosc in and that regard engagement with the Cross-Departmental the importance of homeless services working working services homeless of importance the with other to relevant organisations, build and of recognising purpose the for capacity groups. at-risk with intervening A Priority Action has in been developed the Implementation Homeless Plan Strategy to for of provision and guidance actions monitor co-ordinate the the on issues relevant to the homelessness among occurrence specific of groups, e.g. in relation to family problems. A specific action listed in this context is to reduce applies applies to victims of domestic and sexual One of the aims ofviolence. is the strategy to prevent homelessness occurring among high-risk groups, and domestic violence is areas the of one as Strategy the in suggested in which preventative measures could be emphasises strategy the end, this To taken. Environment, Environment, 3 G Thegeneral policy on under homelessness the Government’s Homeless Strategy, The service is available to those convicted and those not of convicted sexual offences against children. COSC also service educational provides and support a therapeutic for the of family members those who have perpetrated abuse. The services delivered by COSC are for those in the Sligo Donegal, and Leitrim area of Health Service West. Executive At 24 Have Have sexually abused children; Are considered by others to be at
» risk of sexually offending, or where » and/or ention Service. COSC contributes to child to child contributes COSC Service. ention protection by providing a risk assessment who: adults for service treatment and based based sexual violence perpetrator ramme prog- is delivered by the Donegal-based COSC Sex Abuse Treatment and Prev- sexual assault in its first year of operation. of operation. year first its in assault sexual A Health Service Executive community- annum annum of which an ofaverage 33 per cent were from outside of Cork County. The SATU at Waterford Regional rape/ of Hospital, victims 52 saw 2004, in established In In 2006 the Cork SATU, established at the South Hospital Infirmary/Victoria in per clients of115 average an received 2001, accessing accessing the service coming from outside being as described is service The ofDublin. 24 accessible hours a 365 days day, a year. conducted conducted an average medical of examinations 300 per forensic annum, approximately with 35 per cent of victims The most recentSATU activity levels is overview from 2006. indicating this time, the Rotunda Hospital SATU partial partial sexual assault treatment service in Limerick, run by which Shannondoc, sees year. a people 40 about Waterford Regional Waterford Hospital, Waterford; and Mullingar; Hospital, Regional Midland part-time, a also is There Galway. Parkmore, are are located at Rotunda Hospital, Dublin; Letterkenny General Hospital, Donegal; Hospital,South Cork; Infirmary/Victoria Ireland, Ireland, growing from one in 2000. This amounts to one SATU for every 290,075 Units These over. and years 15 aged women sources sources of referral to Síochána. SATUs Garda An and are Centres Crisis Rape There is now a total of six SATUs in and and emergency contraception. The main Team on Homelessness and its constituent be taught through discrete time of one half The primary involvement organisations, with the aim of reducing hour per week throughout primary level, as the occurrence of such homelessness, well as being reinforced through a positive of the education sector is minimising its duration and facilitating and supporting whole-school environment. in the promotion of healthy provision of long-term accommodation for SPHE has been implemented in all schools victims. since September 2003, supported by a relationships through Social, comprehensive national programme of Personal and Health Education The Department of the Environment, professional development for all teachers. It Heritage and Local Government (DEHLG) is taught to pupils from junior infant class (SPHE) and Relationships and provides funding to local authorities for upwards to sixth class. It provides particular Sexuality Education (RSE) homeless accommodation, including facil- opportunities to foster the personal ities used to accommodate persons who development, health and well-being of the programmes. have become homeless as a result of individual child, to help the child to create domestic violence. This funding covers the and maintain supportive relationships and costs relating to accommodation, while to become an active, responsible citizen in the HSE is responsible for the remaining society. costs relating to refuge service provision. There are no statistics available to indicate The SPHE curriculum deals with issues the total level of activity involving local such as making decisions, developing self- authorities on the entire range of housing confidence, growing and changing, personal matters relevant to domestic and sexual safety, relating to friends, family and others, violence. being assertive, handling conflict, respecting difference and awareness of bullying. The curriculum includes a specific Safety and 3 3. 4. the education sector Protection strand unit which applies from junior infant classes through to sixth class. The primary involvement of the education sector in tackling this violence is in the This means that pupils from the beginning promotion of healthy relationships through of their primary schooling learn, in an age- Social, Personal and Health Education appropriate way, how their bodies develop, (SPHE) and Relationship and Sexuality the importance of caring for one’s body and Education (RSE) programmes. Some that of others with dignity and respect, how coverage of domestic and sexual violence to identify people, places and situations is provided in third-level social science that may threaten personal safety, knowing courses. when and how to ask for help, what to do if asked to keep a difficult secret, etc. While the themes of domestic and sexual violence are not dealt with explicitly in the Stay Safe is a resource which is used at curriculum, there is significant provision primary level to implement the safety and within the mainstream primary and post- protection aspects of the curriculum, and primary curricula for relationships and life all schools (teachers and management) have skills education which is of relevance in this been offered training in this area provided area. by the Child Abuse Prevention Programme. In the current year, the 266 schools that Primary level have not availed of Stay Safe training are SPHE is one of the seven curriculum areas being targeted for support. The document in the revised primary school curriculum Children First: National Guidelines for the that was introduced in 1999. It is designed to Protection and Welfare of Children has been
[60] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [61] and and for Exploring Exploring These resources Children Children First resource resource are materials on BALANCE BALANCE – Who cares? designated designated liaison persons (DDLP) persons liaison designated deputy (DLP) and has been offered to post-primary schools. date from 5,187 714 personnel schools To have attended newly all to offered be to continues training training courses. appointed DLPs and The DDLPs and to one of staff. member additional The purpose of the training is to inform National curriculum support services prov- services support curriculum National to and advice training support, ide ongoing schools. The second-level support service HSE. the with collaboration in operates Science and of Education Department The materials resource of sets two developed has for area this to relevant particularly are that use with and Year Transition senior-cycle students as part of an SPHE programme. They are: Exploring Masculinities. use a variety of materials and to strategies equality. gender of issues discuss and explore They pay specific attention to addressing both sexual harassment violence. Also and included in domestic the Masculinities abuse. sexual child and bullying In 2004 the Department and of Science Education developed Child Protection Guidelines based on use in post-primary schools. Since 2004 a two-day programme of training for lessons lessons on consent and emphasis sexual harassment, strong a places it and assault, sexual and and on with emotions, feelings dealing decision relationships, positive encouraging The communications. and dealing making assertive protection, of issues with: deal lessons to with reactions a common assault, sexual a supporting rape, about myths common and to where and assaulted, been has who friend atwww. available are Themanuals help. get ecdrumcondra.ie under the Relationships programme. Education Sexuality and role play, discussion and other activities and activities other and discussion play, role programme. of the aspect each for resources dealswithspecific manual The cycle senior them are developed. developed. are them In addition, all schools are and policy have a an school agreed suitable required to Relationships and Sexuality in for (RSE) place programme senior-cycle Education pupils. The RSE programme cycle at deals with contraception, senior pregnancy, sexually transmitted harassment, sexual assault, and diseases, accepting Theis RSE programme orientation. sexual sexual setting manuals comprehensive by supported outcomes, learning including plans lesson out myths myths about sex and personal pregnancy, safety, substance use and the impact pregnancy. teenage of featured is strand safety personal specific A in each year of explores the procedures programme which with their personal protecting safety along with students for responses appropriate when their safety is In threatened. an third year, awareness on the specific theme of violence, along with knowledge of help agencies, is promoted, and skills students’ for obtaining access to September September 2003, and is designed to taught in be one class period per week over as well as cycle, being the junior supported by a positive ethos the throughout school. The SPHE comprises ten modules, two of which are curriculum Relationships and Sexuality and Personal framework Safety. The modules at junior cycle deal and with belonging integrating, specifically handling conflict constructively, dealing on influences with decision- peer pressure, terms in sexuality and relationships making, tackling system, reproductive the of values, issued to all schools, and training seminars seminars and training to issued all schools, provided. been have guidelines the on Post-primary level SPHE has junior been cycle of post-primary schools since compulsory in the collaboration with the HSE. to schools. Theto second-level schools. support service operates in services provide ongoing support, training and advice National curriculum support While this is a government participants about Children First, to increase High-Level Goal Three of this strategy. The their awareness and understanding of the material set out above points to the level of strategy and therefore a different kinds of abuse and to ensure policy development on domestic and sexual strategy for public services, that procedures consistent with Children violence within State organisations, and First are in place in all schools. The DLP reinforces the need for an overall strategy. the NGO sector is often the is responsible for ensuring that all staff The following section looks at the services point of critical interaction for members have a good understanding of the provided by NGOs. guidelines and that parents and students those affected by domestic and are aware of them. sexual violence. 3 4. services provided by non- The three post-primary management governmental organisations organisations, in conjunction with the RSE and SPHE support services, deliver It is important to understand the value information evenings on child protection of the role of NGOs in the provision of to members of Boards of Management. services to victims of domestic and sexual violence. Funding for a significant range of Finally, all post-primary schools provide a service provision within the Community guidance and counselling service for their and Voluntary sector is provided through students and they receive ex-quota hours the Health Service Executive, as part of from the Department for this service. its continuum of service response. It is Guidance counsellors are qualified to vitally important for the NGO sector and provide counselling support to students who the statutory sectors to have similar aims may have suffered abuse and to assist them and objectives. While this is a government in accessing appropriate help when needed. strategy and therefore a strategy for public services, the NGO sector is often the point of critical interaction for those affected by 3 3. 5. The Department of domestic and sexual violence. Community, Rural and Gaeltacht Affairs Research demonstrates that individuals working with advocates learn more about the The role of the Department of Community, criminal justice system within a supportive Rural and Gaeltacht Affairs in assisting context (Bennett et al, 2004). In the USA, victims of domestic and sexual violence women who receive advocacy services are is largely to provide core funding and more likely to see and follow through with support to NGOs under the Community legal remedies (Weisz, 1999) and report Development Programme, including greater success in obtaining resources and support for the provision of advice, support than women who did not receive guidance and training. Other projects advocacy (Sullivan et al, 1994). Advocacy provide information on the issue. workers accompany and support people as they navigate the legal, medical and social The information in Section 3.3 above systems, proffering an important link provides an indication of the level of between individuals seeking assistance and activity by State organisations in addressing service providers (e.g. An Garda Síochána, domestic and sexual violence. It does not the courts, medical personnel, housing provide comprehensive data on State organisations). intervention on domestic and sexual violence. This is a major gap to be closed in In addition to a variety of preventative and the current system and is addressed under educational services for the community
[62] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [63] General advice and information issued by support This figure excludesany outreach support offered 26 services relates to social entitlements; welfare legal entitlements; reporting to the Legal Gardaí; Aid; community welfare; school and after-school support; and other local support services available. 27 away from the sexual violence services’ main centre(s). A 24-hour National Helpline 1800 778888 is operated by the DRCC and refers victims to all the local services where appropriate. counselling 26 714 individuals, of whom 27 education education department provided participant days 2,392 in 2007. Thisincluded a number of training participants from a the Dublin Rape the and Dublin Sexual Centre Crisis Centre Cork offerViolence a 24-hour on- call support service to locally-based victims their of attend rape who or assault sexual in the in Rotunda and Dublin the SATUs respectively. Cork in Infirmary South Awareness raising and education/training provided services of as the part feature also by all rape crisis centres and One in Four. training received individuals 4,472 total, In from RCNI (excluding DRCC) member in 2007. organisations DRCC’s In In 2007 accompaniment to court, Garda station, to to a hospital or to a SATUs for victims of sexual violence/abuse was a key support offered by violence all support 17 services. sexual In support that services allocated year, the equivalent of 272 days to were clients accompanying 35 and victims court, to of violence sexual accompanied to An Garda Síochána. In 2007, four Rape Crisis Centres provided SATU accompaniment to a total of 366 victims of both sexual Currently, violence. 1800 778888 is operated by the DRCC and refers victims to all the local services where Other appropriate. than this, there is a total of 16 regionally located violence sexual support helplines operating varying at times. These include: 14 RCNI member organisations, Sexual Violence Centre Cork and One in Advocacy, Four. general advice, information, and support are also available. In 2007 a total of 3,230 were men, received face-to-face support service. support violence a sexual from (DRCC), and One in Four. Sexual violence violence Sexual Four. in One and (DRCC), support services are during normal business provided hours. However, morning early addition in mostly offers DRCC the Saturday all-day as well as evening late and services. A 24-hour National Helpline O sexual violence violence sexual O ng 1 . 4 . organisations, organisations, i.e. Sexual Violence Centre Cork, The Dublin Rape Crisis Centre abuse abuse in Ireland. Thisfigure is composed of 14 non-network Rapethree and (RCNI)members Crisis Network Ireland In In 2009, and information 17 support, provided services sexual violence advocacy support for victims of sexual violence/ 3 services oriented counselling). counselling). oriented cognitive cognitive restructuring therapy, assertive communication, problem solving, self-esteem socialisation, gender awareness, body building, trauma grief-resolution- therapy, support-group settings. Thesupport-group structure and content of counselling services can from vary organisation to organisation (e.g. information information and resources a to range of address can issues. be Counselling offered individually services as well as in their their families and friends and can advocates others qualifiedcounsellors, speak to about abusive experiences and secure their options and begin to rebuild their lives lives their rebuild to begin and options their with social, legal and medical assistance if needed. These services and the made facilities available mean that abused people, Refuges Refuges are a source of shelter and safety, largely for women providing and respite, a time to their think, review children, experience experience of crisis intervention and legal procedures. crisis helpline crisis can helpline be bystaffed volunteers, para-professionals and professionals who have received intensive training and have accompaniment accompaniment and Garda and accompaniment Units Treatment to Assault Sexual stations for victims of sexual violence. A provide some combination of the following following of the combination some provide services to victims of domestic and sexual violence: crisis helpline, refuge or shelter, counselling, advocacy, information, court at at large, NGO support services typically variety of organisations including Women’s the treatment programme. Following A national freephone helpline Aid, An Garda Síochána, the HSE, assessment, the majority of participants and domestic violence services. Groups are offered a place in the group therapy 1800 341900 is operated by also covered in this training included treatment programme, which normally Women’s Aid. general practitioners, second- and third- continues for one year. level students, teachers, youth groups, community groups, homeless groups, refugees, nurses, Traveller health workers, 3 4. 2. ngO domestic violence young mothers and other women’s groups. services – refuge facilities
As well as providing support services at Refuge facilities in Ireland are provided by their main facilities, a number of sexual SAFE Ireland network members. There violence services offer outreach support are 19 domestic violence support services to marginalised groups, i.e. those who providing refuge facilities in Ireland, 18 experience multiple barriers to accessing of which are full members of the SAFE services. Unlike domestic violence support Ireland network.28 For an overview of the services, none of the sexual violence/abuse organisations involved, see Table B in support services provides accommodation. Appendix 2. Every region in Ireland has at However, many can and will refer victims least one SAFE Ireland refuge available pro- who present with accommodation needs to viding crisis/emergency accommodation. the appropriate service provider. All but one (located in the Western region) is accessible on a 24-hour basis.
3 4. 1. 1. NGO sexual violence The number of support services providing services – perpetrator refuge facilities increased from 15 to 19 programmes between 2000 and 2007.29 In total, 6,205 admissions were made to refuges in 2007. There is a small number of community- This total number was comprised of 2,262 based programmes for sexual violence women and 3,943 children. The Eastern perpetrators. For example, One in Four has sub-region had the highest (2,172) number been offering a sex offender risk assessment of admissions: 738 women and 1,434 and treatment programme since 2004. In children. This was followed by the South 2008, 22 men exhibiting sexually harmful East sub-region (932): 385 women and behaviour towards children participated 547 children. The North West sub-region in the programme. Risk Assessment and had the lowest number of admissions in the Treatment Programme are conducted 2007 with 81 recorded: 37 women and 44 by One in Four staff psychotherapists, all children. of whom are fully accredited. Rigorous, regular external supervision is provided. Participants in the Sex Offender 3 4. 2. 1. NGO domestic violence Programme are referred by the HSE, the services – support, information Courts Service and a number of NGOs. and advocacy services (non- Each year over 30 per cent of participants refuges) are self-referred and have never previously come to the attention of the authorities In 2007, in addition to the 19 refuges, 28 As it is not an NGO, Rathmines Women’s Refuge is for their offending behaviour. One in Four another 30 domestic violence support not a full member of SAFE Ireland. automatically informs the HSE child services provided support, information and 29 This figure includes those admissions to Rathmines protection services when an offender enters advocacy to women and in some cases their Women’s Refuge.
[64] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [65] O domestic violence violence domestic O NG 2 2 . 2 . 4 . empowered empowered to make important decisions regarding their own and their children’s lives. If her partner leaves or completes a continues support partner the programme, a minimum. at months three another for A one-to-one service is provided by these programmes to a significant number women, often of facilitating them to stay in their homes and get on with their lives, Seven Seven programmes are co-ordinated by the Men Overcoming Violence network (MOVE Ireland) and four by the South East Domestic Project (SEDVIP) managed by Violence the Men’s Intervention remaining one The Network. Development perpetrator programme is the North East Domestic Violence Intervention Project (NEDVIP) and this is managed by Service. Probation the group SEDVIP’s which programme, aims to help men to stop their violent/abusive behaviour, is referred to as ‘Men Ending Domestic Abuse’ (MEND) MOVE, also and, provides a support like service for the partners or ex-partners of the men partner The integrated on programme. the support service in each local programme does important work with victims of the of ofoutcome the Regardless perpetrators. provided is help perpetrator, the with work to the partners or ex-partners up to safety draw plans, learn about of the nature domestic abuse and become more education/school education/school placements, homework and learning supports, and facilitation of also provided. are supervised access 3 perpetrator – services programmes there Currently, are 12 domestic violence offering Ireland in programmes perpetrator used have or use who men with work group against a violence domestic partner. female
accommodation. accommodation. 30 support support services. Therapeutic individual support, support, programmes for group children, support access to and legal information. AMEN also provides provides also AMEN information. legal and for training other dealing service providers victims. male with counselling provide organisations 21 total In services and referral. Other 22 work includes facilitating provide support groups, counselling training and with perpetrator linkage education, raising, awareness activity. inter-agency and programmes Services specifically provided for by children many are domestic violence freephone helpline 1800 341900 is operated operated is 341900 1800 helpline freephone Support Aid. by also Some basis. organisations Women’s outreach an forms on support different of provide range a offer also can services of support for accessing accommodation, including crisis accommodation referral/ sourcing and ‘move on’ There is violence. one domestic of national victims support male servicefor in Ireland AMEN, founded in helpline (046)confidential 1997, group 902 support 3718 provides and includes which a service support counselling accompaniment, court meetings, support support services available in Ireland 2000. in 16 has from increased Most domestic violence advocacy support services and Some these, hours. business can Of also be accessed weekends. open at and evening the during on days on a 24-hour/7 a normal service provide seven per week basis. Services include provision of information, emotional support, court and other forms of and/ accompaniment or support groups, and advocacy, aftercare national A 2). Appendix in D (Table services children, generally during business hours on on hours business during generally children, isThis composed figure to Friday. Monday of 21 SAFE (Table Ireland members organisations affiliated and non-network nine C in Appendix 2). None of these services provides The accommodation. number of Theaim of the service isdirecting individuals to sustainable accommodation offeringreferring or to appropriate services in the community. 30 helpline (046) 902 3718 and support service. AMEN provides a confidential One specific gap identified is supported by the risk management and Information on national and local support safety planning undertaken as part of services is available on www.cosc.ie the need to promote the role of the work of the intervention programme. general practitioner as key ‘first Significant time and resources are put into training, supervising and line-managing 3 5. ‘Joining it all up’ – gaps and port of call’ for those affected these partner support workers. challenges encountered by domestic and sexual Both MOVE and SEDVIP programmes The content and level of current activity, as violence. accept clients who are referred or self- well as the need for co-ordination, has been refer, and their partners are linked to other taken into account in considering the actions support services. required under this strategy and which are set out in the following chapters. NEDVIP is not a member of either network. This programme is also unique in that those In order to understand the current level of attending the programme must be mandated co-ordination and to inform thinking on to do so by either the courts or the HSE. inter-agency solutions, Cosc supplemented the general consultation process by Seven of the programmes operate on a fixed- conducting a qualitative study examining term basis, with closed programmes normally the experiences of service providers. The lasting 26 weeks, generating waiting lists or aim of this study was to identify gaps as well ‘holding groups/sessions’ for men assessed as as challenges encountered in the current being suitable for the programme(s). Rolling response to domestic and sexual violence. or open programmes are provided by four The study was based on a collection of programmes, thereby providing access on an in-depth interviews with various State ongoing basis. organisations and NGOs operating in the domestic and sexual violence sector. In 2007 a total of 235 men attended a domestic Three different types of interviewees (key violence intervention programme for abusive informants) were selected for this study. men, the primary aim of which is to promote Each provided important perspectives and the safety of women and children. While all observations from the sector as well as from of the above-mentioned programmes aim the vantage point of different levels of the to operate according to a series of specified sector – local, regional and national levels. standards and principles of programme delivery, in practice the exact nature of each One specific gap identified is the need to programme varies with location, as each promote the role of general practitioner as separate programme operates independently, key ‘first port of call’ for those affected by making its own decisions about programme domestic and sexual violence. In addition, content and case management. Programme there was a general recognition of the need manuals currently in use across the sector in for all health-care professionals who have Ireland include: CHANGE, MOVE, DVIP, contact with patients to be aware of the the Men Overcoming Domestic Violence risks of all forms of domestic and sexual Programme, and Ahimsa. Each programme violence; to be alert to possible indicators assesses men and their partners/ex-partners of its occurrence; and to be informed of for programme suitability and levels of risk. services provided by other organisations to Each carries out individual and group work assist victims, so that appropriate referrals with male perpetrators of domestic violence can be made if necessary. It is interesting to and undertakes case/risk management with note here that elder abuse did not feature women. as a significant issue in responses to this
[66] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [67] The only exception to thisrelated to co-ordination 31 work with hospitals. appropriate organisations on a case-by-case basis. The value of co-ordination expressedwork, particularly by front-line service providers, is that it helps both with identifying a common vision and with informing the parties involved of where when, and how to call on the most In terms of the problems with co-ordination, co-ordination, with problems the of terms In the competition include: the obstacles main In In summary, co-ordination activity seems organisations among easily more develop to in respective their located are that similarly organisations that means This environments. the in localities/regions, same the in working or same or disciplines systems in the same in together to work likely more were sector that suggest would This way. co-ordinated a organisations involving committees regional statement or goal common a under working particularly be to likely are policy national of co- inter-organisational inbuilding effective ordination. In In terms of similarity in background discipline, respondents generally or indicated that, on However, the well together. work organisations whole, non-governmental some respondents also said for funding, that, of are issues there competition where there can be a struggle among these same organisations for status The in lowest levels the of non- and State the sector. to be between co-ordination perceived were organisations. governmental different systems, e.g. efforts to co-ordinate to co-ordinate efforts e.g. systems, different activities between the criminal justice and systems. health co- vertical that indicated respondents Many i.e. between ordination, local, regional and problematic more be to tends levels, national describing When generally. organisations for these more connections, and/or respondents weaker indicated involved often they that for example involving formal relationships, (and largely confined to) governance/fund management. It It was is felt that co-ordination horizontal in the located those among successful more in e.g. located the criminal ‘discipline’, same in health the those or among system justice inco-ordination difficulties Greater system. arise for that organisations are located in
31 31 the development of formal protocols rarely rarely of the protocols formal development respondents. by mentioned being localised activity sees organisations meeting meeting organisations sees activity localised and formal both including basis, regular a on with together, working of methods informal good good are working It that relationships. seems areas in this well particularly happen may Such contact. regular allow to enough small ordination activity were mixed. On one the mixed. were activity ordination hand respondents said that organisations in operating the same locality can develop regional or national. national. or regional co- organisational of intra-regional Reports Respondents Respondents indicated that co-ordination that organisations among easily more occurs organisations i.e. connected, horizontally are – local, levels same the at operating are that outreach outreach clinics in different parts of what area. geographic large a was also also facilitated organisations to the capacity expand of local service provision as they to together worked develop and hold updating updating on as developments some of work. the inter-organisational their for purposes In some regions, co-ordinated working of when, where and how to call on the most most the on call to how and where of when, on a case-by-case organisations appropriate basis. Respondents identified specifically: sharing and information raising, awareness particularly by front-line service providers, is is providers, service front-line by particularly common a identifying with both helps it involved that parties the informing with and vision of court proceedings. court of expressed work, of Thevalue co-ordination However, However, the development of risk to some by a is seen focus victim-centred general objectivity and impartiality the undermining There needs is the all widespread recognition meet that cannot the alone service health of victims of and domestic sexual violence. of lack of awareness of elder abuse of difference or understandingof elder abuse a abuse. domestic and study. study. Thismay support perception a that has prevailed among organisations It reinforces the point that responses are The main obstacles include: the to secure funding and to establish their multi-dimensional, requiring multi-sectoral status and service reach in their respective and multi-disciplinary solutions. It also competition that has prevailed environments; the lack of development of displays the complexity of the response among organisations to secure domestic and sexual violence policies and situation in Ireland. of their integration in the overall work of funding and to establish their organisations – in particular for organisations It is no wonder that victims experience status and service reach in not primarily dedicated to domestic and difficulty navigating this complex landscape. sexual violence, priorities in relation to such It must be improved primarily for people their respective environments; violence are sometimes unclear and their like Jenny, Anna and Joe, whose experiences the lack of development of commitment likewise can be unclear; a were recounted in Chapter One, but it also history among many organisations of some must be improved to ensure best public domestic and sexual violence difficulties in relation to working relation- value. All of this activity must make the best policies and of their integration ships and low levels of co-operation. collective impact. in the overall work of Overcoming these obstacles requires The strategy is informed by the current organisations. establishing a common vision. This involves context which is composed of the prevalence understanding the role, scope and limitations of domestic and sexual violence, the evidence of other stakeholder organisations. It of how and when it occurs, risk factors and involves recognising and, where relevant, their impact, the current intervention system accessing the expertise of other organisations and the policy background. and an openness to see things from other perspectives. This vision is more likely to As a significant foundation strategy, it be sustained through central leadership is important to bear in mind all of these and an integrating strategy, ensuring that contextual factors. The development of this arrangements for organisations working strategy provides a major opportunity to together are established and developed on radically improve Ireland’s prevention of and an ongoing basis. response to domestic, sexual and gender- based violence. Listening to the voices of victims, recognising the current landscape 3 6. Conclusion and working in partnership with a broad range of State and non-governmental bodies, This chapter has presented a picture of it is now clear which actions are required the responses to the problem of domestic, and will be taken over the coming five years. sexual and gender-based violence in Ireland. These are set out in the following chapters.
[68] INTRODUCTION CHAPTER 1 CHAPTER 2 CHAPTER 3 CHAPTER 4 CHAPTER 5 CHAPTER 6 CHAPTER 7 LY IVE T EFFEC NS E IO R O NT VE M M R E E BL NT I O R P E MARY MARY I
PR Chapter Four NG TH I
wo T KL
C
A
T Part Part Chapter Four Primary interventions
Primary interventions are those 4 1. ntroduction The objectives of this High-Level Goal are: that aim to prevent a problem Previous chapters have presented the » To increase understanding, recog- from occurring or, when it has problem to be addressed by this strategy and nition and practical information have outlined the activity and challenges of on domestic, sexual and gender- taken place, to prevent its the current situation. Studies of the current based violence throughout society in recurrence. system and consultations with stakeholders Ireland have pointed to the need for a common » To increase understanding and vision delivering improved outcomes through recognition of domestic, sexual and collaboration and co-ordination across gender-based violence in State-sector relevant services. This need underpins every organisations action in the strategy. Part One introduced » To raise awareness among young the strategy model comprising primary and people of domestic, sexual and gender- secondary interventions surrounded by, and based violence. interwoven with, a clear emphasis on co- ordinated impact assessment and evidence on which policy and service planning is based. 4 2. 1. action 1 Part Two of the strategy sets out the actions to be taken, over the period 2010 to 2014, Increasing understanding and recognition to tackle the problem more effectively. This of domestic, sexual and gender-based chapter deals with primary interventions. violence is an ongoing objective that requires several supporting activities. Primary interventions are those that aim General recognition and understanding to prevent a problem from occurring or, of the issues involved need to be raised when it has taken place, to prevent its throughout society as a whole. Cosc’s 2009 recurrence. In the context of domestic report on attitudes to domestic abuse in and sexual violence, primary interventions Ireland showed that while just over 70 per are those used to raise awareness, increase cent of the population consider domestic understanding and recognition, educate abuse against women to be common, far people about the dynamics of the problem fewer people see domestic abuse against and its impact, and equip people to better men as a problem. The survey also respond to the problem. showed that people are unsure about how to respond to domestic abuse, they Primary interventions are an essential are uncertain about how to help a family element of any strategy to combat domestic, member who is a victim of domestic sexual and gender-based violence. In the abuse, and they are reluctant to become long term, incidents of domestic and sexual involved if the victim is a neighbour or violence will be reduced or prevented someone they don’t know well. through raising awareness of the problem and changing attitudes. Campaigns need to be developed carefully, on the basis of robust research and with sensitivity to unintended impacts. 4 2. high-Level Goal 1 It is important to note that leaving a violent relationship can be a particularly To promote a culture of prevention dangerous time for the victim. Research and recognition through increased has shown that only 11.5 per cent of understanding of domestic, sexual and women survivors of domestic abuse gender-based violence interviewed reported that they did not
[70] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [71] HSE Implementation structure Cosc (with NSC, RAC and NGO participation) Cosc (with NSC, RAC and NGO participation)
Apart from Actions 6, 8, and 9, all HSE actions and indicators are indicators directlyare taken from the current of draft the HSE policy onand SV. DV 32
from Q1 2011 to 2014 to 2011 Q1 from trained by LHO by Q4 2010 Annual Information 2010- Programme 2014 developed by Q2 2010 and by Q1 each year thereafter Programmes implemented by end year of programme dissemination plan developed by Q4 2010 (b) Implement plan Number of groups (a) Targeted (a) Targeted (b) Annual (a) Guidance and
1.2 1.3 1.1 1.1 1.2 Progress Progress indicator HSE Indicative list of key bodies Cosc (Lead) Cosc (Lead) ocal l
what what kind of services they should expect and the risks involved in Campaigns taking also need action. to be supported by and a inmedia engagement interest strong the issue by persons with a high profileor in society. influence Action 1 aims to increase and recognition understanding of domestic and sexual take take appropriate action. Any awareness- supplemented be to needs campaign raising by practical information for victims, their families and friends as well as can victims how for about workers, front- service line help, for look to where safety, their increase 32 to challenge myths to confront offending behaviour offending to confront understanding and to increase on information practical provide to
for all community groups and for all community groups funding that receive organisations the HSE from violence and services available services and violence personal safety steps to increase for those most at risk from gender-based and sexual domestic, violence NGO networks and Cosc a training pack national awareness including engaging national, and journal media in delivering articles to the general public, and to specific audiences (including vulnerable or high- professionals, older people etc), risk groups, and recognition, gender-based and sexual domestic, Agree in partnership with the Agree Develop guidance on practical Undertake a range of activities » » » »
1.2 1.3 1.1 Activities specific audiences domestic, sexual and gender-based violence among the general public and develop an understanding of and recognition Promote and Promote
able 1 1 Action T in Irish society, of in an Irish society, informed capacity to related activity. It is not intended related activity. that this work will result in that rather it the encourages development, passive intolerance, tools in the process of increasing recognition recognition increasing of process the in tools and ofunderstanding domestic and sexual violence, and need to be supported by national national and campaigns local that key are issues the of understanding challenge increase awareness-raising myths and The vast majorityreported someform of continued abuse (Davies et al, 2009). Developing, implementing and sustaining experience further abuse after leaving. violence throughout society as a whole, response through their direct action and/ and develop among young people an within high-risk groups and within specific or through correct and speedy referral to intolerance of domestic, sexual and gender- audiences such as health-care professionals, meet the needs of the victim. based violence. the justice system and other front-line staff. The HSE is committed to agreeing and Recognising that schools have a key role The activity to be undertaken is framed delivering a suite of national training packs in educating young people about healthy to ensure that appropriate and targeted for all front-line staff. relationships and raising awareness communication is made with particular of domestic and sexual violence, Cosc high-risk or marginalised groups such as In order to improve both sector-specific undertook a study of the current situation people with disabilities, migrants, members training and multi-agency training, a regarding domestic and sexual abuse of the Traveller community and older Training Committee will be established awareness-raising activities among students people. This activity will be driven by which will identify training needs across attending post-primary schools in Ireland. Cosc through targeted annual information the justice sector, relevant to domestic and The study also identifies the main obstacles programmes and will be carried out with the sexual violence, identify current training experienced by schools in carrying out this assistance of State and non-governmental gaps, and scope, develop and implement work. The results of the study are intended partner organisations. The work will training programmes to meet these needs. to inform future work on the development include determining messages, audiences of awareness-raising on domestic and and communication routes for inclusion in A further activity under this action is to sexual abuse in post-primary schools in the Annual Information Programme; and be carried out through the inclusion of Ireland. The study is based on a nationally the engagement of the media and target suitable material in course curricula in representative sample (n=82) of all types audiences through, for example, round table third-level courses such as medicine and of post-primary schools in Ireland. The meetings, seminars and conferences. social science, through increased, targeted school Principal/Head and the SPHE training and continuing professional Co-ordinator were the main respondents Material aimed at increasing understanding development of front-line State-sector interviewed. and recognition will be supplemented by workers. This will involve working with guidance for those most at risk on practical the institutions concerned in relation Notwithstanding the material provided in steps to increase personal safety. This will be to determining the courses relevant to schools as set out at section 3.3.4 above, carried out by determining target audiences domestic and sexual violence, identifying the majority of schools reported that and suitable means of communication, content gaps and the process for curricular the broader curriculum at both senior preparing content based on best evidence, inclusion of suitable material, agreeing a and junior post-primary level does not consulting with relevant State bodies and pilot programme for trial purposes, and help explicitly to raise awareness about NGOs, and agreeing and implementing a extending the programme following a domestic and sexual abuse. A small dissemination plan. review of the pilot. The HSE is already proportion of schools have used outside making efforts to include the issue of elder facilitators for the purpose of raising abuse as part of the core curriculum for awareness of abuse. A significant majority 4 2. 2. action 2 nursing and medical training. reported that they would prefer material on such abuse to be delivered by both The second step in increasing under- The Department of Education and Science teachers and outside facilitators. The standing of domestic and sexual violence will continue to promote issues relevant to principal difficulties reported by schools is developing and implementing training domestic and sexual violence in training on in delivering awareness-raising on sexual programmes to ensure that front-line student care among school professionals. abuse to senior and junior cycle students staff and professionals provide an effective include the pressure of examinations, response. Previous chapters referred to an overcrowded curriculum and the the critical problem of disclosure and 4 .2 .3 action 3 possibility of parental opposition. confidence in services. It is vital that relevant front-line staff and professionals The final objective of High-Level Goal 1 The activities under this objective are recognise the signs of domestic and sexual is targeted at children and young people aimed at both second- and third-level abuse, and are skilled to provide a suitable and aims to promote healthy relationships students as well as young people involved
[72] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [73]
Cosc with NSC and NGO participation No specific structure needed Implementation structure HSE Cosc-led training committee and/or service-led committees
information and third-level advice students, work available with organisations partner to to consider the scopewith andstudentwork material, improved for high-ofavailability the increase servicesto accurate information. quality,
or development of suitable training by programmes Q2 2011 training programmes by Q4 2011 trained each year some institutions by end Q2 2011 end Q4 2011 to from Q1 2012 end Q3 2012 end institutions from Q4 2012 trained professionals staff trained by each staff LHO by Q1 2011 training needs identified by Q1 2011 (c) Implementation of (d) Number of staff Number of school Number of front-line Number of front-line (a) Justice sector (b) Identification (a) Develop pilots in (b) Implement pilots (c) Review pilots by (d) Extend to other
2.2 2.2 2.3 2.3 2.3 2.3 2.4 Progress Progress indicator 2.1 2.2 2.2 Courts Service, Legal Aid IYJS Board, Cosc, HSE, OOP, Institutions concerned DES Indicative list of key bodies HSE Cosc (Lead), Garda, Probation, based violence, and to provide them with practical information on how and where to get help. Cosc will: lead a review of Under Under this practical strategy, information and guidance material will be developed for third-level institutions and unions student in order to the inform risks of domestic, students sexual and gender- of relevant to domestic, sexual and relevant violence in training gender-based among school on student care professionals to include understanding and of domestic, sexual and recognition violence in curricula gender-based including social services and legal studies curricula from agreed existing materials agreed from justice sector needs for all relevant including identification organisations suitable for cross-sectoral of areas training analysis, develop and implement training programmes training packs for all front-line staff staff training packs for all front-line settings, health-care in different Agree and deliver a suite of national Agree (b) In the light of the training needs Continue to promote issues Continue to promote Work with third-level institutions with third-level Work (a) Conduct an analysis of training
2.4 2.3 2.2 2.2 Activities 2.1 domestic, sexual and gender-based the violence across State sector and develop understanding of and recognition Promote Promote
able 2 Action 2 T issues of domestic and sexual violence. violence. sexual of and issues domestic Education and Science will lead work with with work will lead Science and Education curriculum support services and Cosc to strengthen the emphasis on awareness of in youth programmes school outside context such of as Youthreach similar the and programmes. The Department of Table 3 Indicative list of key Progress Implementation Action Activities bodies indicator structure 3 Embed domestic, 3.1 Develop and implement sustainable DES (Lead), 3.1 (a) Develop enhanced Education committee sexual and gender- second-level educational Curriculum programme content based violence programmes, applying learning support by Q2 2011 content in second- from Cosc research on schools services, 3.1 (b) Number of and third-level programmes and from the Cosc schools/teachers educational experience of programmes provided who have availed of institution action on in this area training in enhanced healthy relationships programme each year
3.2 Develop and implement programme As above 3.2 (a) Develop content As above for young people attending for delivery in Youthreach and similar education Youthreach and programmes similar programmes by Q2 2011 3.2 (b) Number of schools/teachers who have availed of training in enhanced programme each year
3.3 Work with third-level institutions Cosc 3.3 (a) Practical guidance Cosc with NSC and other and student media to increase (Lead), for third-level colleges NGO participation understanding and practical Third-level on risk of domestic, information on domestic, sexual and institutions, sexual and gender- gender-based violence Student based violence and health services available by services Q4 2010 3.3 (b) Number of colleges involved each year
Particular attention is paid to the the problems of domestic, sexual and gender- 4 3. Conclusion opportunities for multi-agency training based violence, recognises these crimes when to develop and support links between they occur, and is confident about disclosure, This chapter covers actions that will be State organisations. Activity will also be knowledgeable about services, and intolerant taken to improve primary interventions undertaken to inform our young population of these forms of violence. The overall goal of addressing domestic, sexual and gender- and to increase their understanding of the actions is the creation of a strong culture based violence. Actions are aimed at domestic and sexual violence in order to of prevention and recognition through increasing understanding, recognition and reduce the risk among that sector and to increased understanding of domestic, sexual practical information among the general change cultural attitudes of future adults. and gender-based violence. public and among specific audiences such as professionals, front-line staff and those at The above three actions combined aim to The following chapter deals with actions to high risk of domestic and sexual violence. create a society in Ireland that understands improve secondary interventions.
[74] INTRODUCTION CHAPTER 1 CHAPTER 2 CHAPTER 3 CHAPTER 4 CHAPTER 5 CHAPTER 6 CHAPTER 7 NS IO NT VE R E NT I ARY ARY D ive N SECO Chapter F Chapter Five secondary interventions
Secondary interventions arise 5 1. ntroduction Through interviews with women who have experienced domestic violence in 1999, once an incident has occurred The previous chapter outlined the activity Kelleher and O’Connor found the following and there is a direct role for to be undertaken to enhance and further factors to be critical for women when develop primary interventions. attempting to leave abusive relationships: services to deal with a report, to respond, or to refer on for Secondary interventions arise once an » Safety and protection incident has occurred and there is a direct » The support of family and friends needs to be met by a more role for services to deal with a report, to » Access to support agencies specialised service. respond, or to refer on for needs to be met » Access to a sympathetic solicitor and by a more specialised service. In the context Gardaí who understand the dynamics of domestic and sexual violence, secondary of domestic violence interventions are mainly the services » Sanctions to control the perpetrator. offered to victims. The enhancements required in this area relate to the standard Providing the right supports and services of these services, the co-operation and co- to victims needs to be accompanied by ordination between service providers and measures that focus on perpetrators and the levels of support offered to victims. seek to address offending behaviour. Effective action in the justice system Effective secondary interventions inspire and through perpetrator intervention confidence in victims, provide a high programmes reduces the risk of re-offending standard of support and reduce the and increases the safety of victims. possibility of violence recurring. Thus, secondary interventions also include measures to address offending behaviour 5 2. high-Level Goal 2 by perpetrators, e.g. domestic violence intervention programmes and sex offender To deliver an effective and consistent programmes. The interventions reflect the service to those affected by domestic, complexity of needs of those affected by sexual and gender-based violence these crimes. The objectives of this High-Level Goal are: Secondary interventions responding to these crimes therefore range from routine » To increase confidence in service enquiry in hospital or GP settings which provision aim to facilitate disclosure, to direct service » To promote high standards in provision to victims, such as assistance with service provision accommodation, counselling and medical » To strengthen intra- and inter- attention, to relief provided through the organisational co-ordination to improve civil and criminal justice process. service effectiveness and consistency » To improve protection and support The response to a victim immediately after for victims an incident of violence has taken place, or » To address offending behaviour by disclosure of a series of violent incidents, perpetrators. and the level of care she or he receives at this stage will impact greatly on progress These objectives will be achieved through towards recovery. For many, leaving an the implementation of Actions 4-18. Some abusive relationship means raising children actions are relevant to several of the above alone and struggling financially to survive. objectives.
[76] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [77]
Implementation structure No specific structure needed. Cosc to drive within this strategy. within this strategy. disclosure Promoting is also vital in other as justice, such the health, from apart areas housing and education sectors. Through existing cross-departmental Cosc structures, will disclosures identify and best opportunities practice actions disclosure for applied in in sectors other other than jurisdictions the health sector. that, that, in general, reporting and of sexual domestic violence to strikingly professionals low. Research is shows that average a victim on of domestic violence will be assaulted 35 times before (Yearnshire, 1997). disclosing Ensuring reasonable opportunity for disclosure and promoting routine disclosure is vitalservice response. for effective This strategypolicy incorporates on domestic the and sexual in HSE many violence areas. The HSE policy includes an action to increase the opportunity for contexts health-care different indisclosure and environments and with specific target groups. In order to ensure a co-ordinated the approach, HSE action is incorporated
to deliver service service deliver to victims to information levels awareness among victims and consistent information effectively disseminated by State organisations support strategic NGOs to provided (b) Improved service (b) Improved Accessible and Effective (a)
4.2 Progress Progress indicator 4.1 4.2 NGO services Indicative list of key bodies Cosc (Lead) and all relevant State services Cosc (Lead) and all relevant
ction 5 ction a 2 . 2 . Accessible Accessible service information the beginning is of just the confidence work in to the increase system. It is known NGOs in creating and distributing effective effective distributing and creating in NGOs on and information the consistent services of perpetrators and victims for provide they conjunction In violence. sexual and domestic with partner organisations, consider and implement to improvements Cosc will having regard grant the scheme, awareness to the outcome of evaluation of activities scheme. the under out carried 5 State State organisations and support services to increase the availability of high-quality information material for materials produced victims. by Cosc All will organisations State be in and user-friendly other diversity to regard due have will and formats and particular needs of vulnerable groups such as migrants, people Travellers, with etc. disabilities, Cosc scheme, grant awareness the Through support and encourage to continue also will sexual violence provided by State sexual violence provided organisations dissemination of support effective information on domestic and sexual by non- violence services provided State organisations victims of accessible and consistent information on domestic and Continue to encourage and Promote effective dissemination to effective Promote
4.2 Activities 4.1 ction 4 ction a formats on services is available to victims in user-friendly Ensure information Ensure 1 .
2 able 4 . Action 4 T
information information including the scope for joint information material. It will work with available available as currently provided to victims by State organisations. It the will consider accessibility and clarity of this sexual violence among State organisations. sexual among violence State organisations. Cosc will review information on domestic and sexual violence and relief or services Cosc Cosc will continue to promote dissemination of effective accessible and consistent information on domestic violence and Gardaí and to remain in the criminal justice justice criminal the in remain to and Gardaí process. the of end the until system process process involved in reporting a crime and the ensuing steps in bringing a complaint through the criminal justice service will encourage more victims to report to the available to victims in user-friendly formats. formats. user-friendly in victims to available Clear, accessible and easy to understand information on State services and the in in service provision for those affected by violence and gender-based sexual domestic, is services on information that sure making is 5 A basic first step in increasing confidence Table 5 Indicative list of key Progress Implementation Action Activities bodies indicator structure 5 Ensure reasonable 5.1 Agree and implement an HSE 5.1 (a) Assessment form HSE opportunity is assessment form with domestic agreed by Q1 2010 provided for violence questions for routine use 5.1 (b) Number of disclosure of for all staff in different health-care staff who received domestic and sexual contexts/environments with specific assessment forms at violence target groups training by LHO by Q4 2010 5.1 (c) Number of screen- ing forms completed
5.2 Identify and promote best practice Cosc 5.2 (a) Proposals for Justice and Tripartite to encourage disclosure of domestic (Lead), local non-health sector Committees33 and sexual violence in relevant authorities, disclosure (including sectors including justice, housing, DEHLG, suitable pilot) and education sectors DES developed by Q4 2011 5.2 (b) Pilot implemented by Q2 2012 5.2 (c) Pilots reviewed (including number of forms completed) by Q2 2013 5.2 (d) Action taken in light of review by Q4 2013
For example, there may be undeveloped quality standards in service delivery for opportunities for disclosure in the justice victims and perpetrators of domestic and or housing sectors, etc. Cosc will facilitate sexual violence. The Council of Europe consideration of the feasibility of the defines minimum standards as the lowest application of best practice actions in common denominator or basic standards that Irish State services and the development all States and services should aim to achieve. and implementation of pilot schemes for Good practice is not just about minimum disclosure in these sectors. The pilot schemes standards but rather should be aspirational will be reviewed periodically by the sectors and aim to maximise access to services and and organisations involved with a view to develop the quality of these services. further development. One step taking place in the justice sector is 33 Cosc facilitates inter-agency co-ordination across the the promotion of high-quality standards in justice sector through the Justice Committee, and inter- 5 2. 3. action 6 service delivery through the implementation agency co-ordination across State bodies responsible for of the new Victims Charter. The Victims justice, health and housing policy through a committee Action 6 is the promotion of clear, high- Charter describes the criminal justice system known as the Tripartite Committee.
[78] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [79] HSE Cosc to drive HSE HSE Implementation structure of Crime Office, Victims Cosc No specific structure.
and and
Children Children
Child protection policies policies protection Child SATU review report report review SATU in place in all HSE-funded HSE-funded all in place in re- on based services, of quirements Guidelines National First: and Protection the for Children of Welfare 2010 Q3 Care to Duty practice models models practice and identified service to circulated 2010 Q3 by providers thereafter regularly and practice models annually considered of intervention for the responses most vulnerable by Q4 2011 groups in place in all HSE- funded services by Q4 2010 implemented by Q4 2010 (funding dependencies) published by Q1 2010 Victims Charter Victims
best At least 2 Number of standards Information on best best on Information Development 6.7 6.3 6.4 6.5 6.6 Progress Progress indicator 6.1 6.2 HSE and all rele- all and bodies vant Cosc (Lead) Cosc (Lead), OOP HSE (Lead) HSE (Lead) Indicative list of key bodies of Victims Office Crime and (Lead) relevant all bodies (Lead) Cosc
Victims Victims outlining the the outlining are being adhered to by all all by to adhered being are Implement the recommendations recommendations the Implement in requirements the that Ensure domestic violence services violence domestic assault sexual of standardisation on National the in out set as services SATUs of Review Guidelines National First: Children of Welfare and Protection the for Children services violence domestic specialist delivery based on consideration of of consideration on based delivery models practice best suitable to relation in responses service for violence sexual and domestic (including groups high-risk or older vulnerable disability, a with people Travellers, people) young and migrants, people, develop to networks NGO national specialist within standardisation commitments to victims generally, and and generally, victims to commitments gender- and domestic sexual, of victims by made particular, in violence based agencies justice criminal State eight the and victims for delivery service and domestic of perpetrators violence sexual Charter and Guide to the Criminal Criminal the to Guide and Charter System, Justice Publish a new edition of the the of edition new a Publish
Work in partnership with the the with partnership in Work Identify best practice models for for models practice best Identify service to improvements Encourage Identify and promote suitable State State suitable promote and Identify 6.6 6.7 6.4 6.5 6.2 6.3 Activities 6.1 perpetrators of domestic and sexual violence quality standards quality standards in service delivery for victims and Promote clear, high- clear, Promote
able 6 Action 6 T Table 6 continued Indicative list of key Progress Implementation Action Activities bodies indicator structure 6 Promote clear, high- 6.8 Develop and disseminate guidelines HSE 6.8 Best practice HSE quality standards on working with children in domestic guidelines outlined, in service delivery violence situations disseminated and for victims and covered in service perpetrators of level agreements domestic and Q4 2010 sexual violence 6.9 Ensure the assessment form for HSE 6.9 Number of children HSE children at risk will contain key identified at risk re questions about domestic violence domestic violence are followed up
6.10 Ensure the assessment form for HSE 6.10 As above HSE children at risk regarding domestic violence contains questions regarding children’s welfare
from the perspective of a victim of crime and Platform strategic objectives state that information on evaluated models for sets out a victim’s rights and that person’s services must be linguistically and culturally service delivery, inform relevant service entitlements to the services provided by accessible to migrant victims, must cater for providers and encourage consideration and the various State agencies. The Charter victims with disabilities, for victims who implementation of best practice models includes statements of commitments in become displaced due to conflict and for and standards. relation to victims of crime by An Garda those living in rural areas. Síochána, the Courts Service, the Prison The needs of particularly vulnerable, Service, the Probation Service, the Director Some work has been done in Ireland marginalised and high-risk groups need to of Public Prosecutions, the Coroner in relation to best practice models and be taken into account in this work. Cosc Service, and information on the Criminal standards for services. For example, Rape will work closely with service providers Injuries Compensation Tribunal. Crisis Network Ireland has worked closely and other bodies such as the National with RCC managers and Board members Disability Authority (NDA) in order to In addition to the implementation of the to develop a Quality Framework for identify other models of best practice and Victims Charter, work is also required RCCs, and Minimum Quality Assurance standards to meet the particular needs of to encourage and promote high-quality Standards (QAS) for RCCs in Ireland. The these groups and to promote and encourage service delivery through the identification Quality Assurance Framework includes improved responses. and application of best practice models. 26 minimum standards which must be International conventions and organisations implemented by RCCs. The RCNI provides Finally, the 2009 HSE policy on domestic such as CEDAW (Convention on the a researched and referenced template for and sexual violence includes specific actions elimination of all forms of discrimination each of the QAS (Source: RCNI, 2009). to develop standardisation within specialist against women) and the Beijing Platform The HSE is considering the applicability of domestic violence services as well as actions for Action, provide some guidance on the these standards to the services it provides to implement the recommendations on types of services that are required to combat to victims of sexual violence. Cosc will standardisation of sexual assault services domestic and sexual violence. The Beijing work with partner organisations to source as set out in the National Review of Sexual
[80] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [81] ODPC DJELR Implementation structure Justice and Tripartite Committees
domestic domestic and sexual violence is a complex process that requires wide a the across NGOs involvement and of services State both range of Dealing sectors. with such a vast is a daunting very providers of service array Research a for task victim. complicated and out carried in the UK in the 1980s found contact make to had average on women that with between five and service providers in twelve order to get different the help national, national, regional and local work level This actions. these will through developed be promotes opportunities for networking, sharing information and across State best agencies, and where relevant practice NGOs. include also may Emphasising the joined-up approach to strategic action taken across the strategy, Action 7 aims to achieve inter-organisational the and objective of intra- strengthening ser- improving to a view with co-ordination Previous and vice consistency. effectiveness chapters have noted that responding to
(d) Implement by end (a) Guidance for any (b) Provide (a) Assess extent to protocols (b) Agree further (c) Agree end Q4 2012 2014 developed and disseminated by Q4 2010 necessary legislative change which specific referral which specific by required protocols end Q4 2010 by end in 3 key areas Q4 2011 by required protocols are
7.1 7.1 7.2 7.2 Progress Progress indicator 7.1 7.1 7.1 ODPC DJELR Indicative list of key bodies Cosc (Lead), HSE, Garda, Courts Service, Probation ction 7 ction a 4 . 2 . gathered gathered through the study informs the implementation of the Vertical and horizontal actions co-ordination at below. Overviewing Overviewing organisations the is particularly valuable inter-agency in inter-activity co-ordination. Not activity of demands co-ordination every and it is important to identify where co-ordination is required and will outcomes. Ad produce hoc the development best ordination of between agencies co- may ignore key parties, duplicate structures and limit impact. examination Cosc’s of the current system indicates that there is a recognised need and an appetite for and co-ordination inter-agency work. The knowledge the the Protection and of Welfare Children staff relevant all that and implemented fully the understand need across for integration sectors. education and justice health, the 5 Provide guidance on data protection protection data on guidance Provide Promote and further develop practices practices develop further and Promote practice practice sharing information of implications services across and protocols on inter-agency referrals referrals inter-agency on protocols and best on based co-operation and
7.2 Activities 7.1 Children First: National National First: Children are adhered to by all domestic and to by all domestic adhered are projects agency co- through ordination multi-agency Promote inter- Promote Children Children First: National Guidelines for able 7 Action 7 T abuse. abuse. It is critical that the requirements in pupils, pupils, those working in sector the have the potential to become aware education of children at risk of domestic and sexual has been identified as being at risk. risk. at being as identified been has Through their close interaction with and and the child protection services of HSE work to closely together child the a ensure that where taken are measures appropriate aforementioned important is aforementioned It HSE strategy. actions this into are incorporated being services violence sexual and domestic the that to to develop and disseminate guidelines on violence in with domestic children working As noted in earlier situations. this chapter, to ensure a co-ordinated approach, the Guidelines for Guidelines the and of Protection Welfare Children sexual violence services as well as actions Assault Assault Treatment Units (SATUs). The to actions HSE ensure also policy includes in guidelines the that Table 8 Indicative list of key Progress Implementation Action Activities bodies indicator structure 8 Improve 8.1 Promote opportunities for networking, Cosc (Lead) 8.1 (a) Effective meetings No specific structure collaboration and sharing information and best practice of NSC and related necessary information sharing across State agencies committees (ongoing) in relation to service 8.1 (b) Conduct provision annual reviews of collaboration activity at regional/national level
8.2 Regular liaison between Cosc and the Cosc and 8.2 Progress made on No specific structure HSE Assistant National Director for HSE HSE-related domestic necessary Children and Families Social Services and sexual violence and the HSE Assistant National actions Director for Older Person’s Services regarding progress on all HSE-related action on domestic and sexual violence
8.3 Support Regional Advisory Committees HSE 8.3 Effective meetings No specific structure to improve collaboration and the of RAC and related necessary implementation of national policies on committees (ongoing) domestic and sexual violence
8.4 Explore areas of work to identify those Cosc 8.4 (a) Areas of work to be Cosc (with advice from suitable for cross-border co-operation (Lead), identified by Q3 2010 NSC, RAC and NGOs) to address domestic and sexual DFA, HSE, 8.4 (b) Consider setting violence Garda, up projects to take Courts forward suitable areas Service, of work by Q1 2011 Probation Service
they required (Binney et al, 1982). Therefore facilitate the preparation of protocols. Indeed research indicates that a co-ordinated it is essential that all service providers try to Guidance on information sharing will approach reduces further incidences of co-ordinate their work in order to lessen the be provided by the Office of the Data violence (Shepard and Pence, 1999). In the burden on the victim. Protection Commissioner. United States the formation of ‘co-ordinating councils’ has been encouraged and promoted. In conjunction with partner organisations, Co-ordinating councils are committees that Cosc will identify best practice on inter- 5 2. 5. action 8 are created to lead the co-ordinating effort. agency referrals and co-operation, identify The membership consists of representatives current practice and scope for inter-agency Greater co-ordination between service from agencies, departments and community referrals and improved co-operation, providers and a multi-agency approach to groups dealing with domestic violence. The including the needs for specific referral service provision are concepts that have aim of co-ordinating councils is to increase protocols. Cosc will, where necessary, been widely accepted over the past 20 years. communication and improve co-ordination
[82] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [83] Implementation structure HSE and HSE-funded services for victims of domestic and sexual violence ction 9 ction a 6 . 2 . provision and strengthen co-operation and and co-operation provision strengthen All of these services. between co-ordination 9, with Actions together combined, actions 10 and 11, aim and to protection improve for support of victims and sexual domestic violence. across improvements to general In addition service provision, there are strategy. this specificin areas targeted are which on Co-operation on Criminal Justice Matters, Matters, Justice Criminal on Co-operation on co-operation between North and South is a being across taken forward of number criminal justice areas, including registered for and publicsex protection victim model offenders, good a provides work This support. Where co-operation. cross-border successful the with in link to seek will Cosc appropriate, develop to order in place in already sexual structures and domestic address that programmes context. cross-border the in violence 5 (Actions chapter inthis todate actions The 4-8) aim to increase in confidence service in service standards high promote provision,
developed and and developed by implemented HSE the and services 2011 Q2 by Q1 2011 Q1 improvement Review completed by by completed Review for Proposals
Progress Progress indicator 9.1 9.2 Indicative list of key bodies HSE implementation of this strategy at local level. level. local at strategy this of implementation Agreement Under the Inter-Governmental best practice across State agencies. Thiswill agencies. State across practice best be through and implemented encouraging and NSC of the functioning the monitoring constructive maximise to committees related promote will Cosc collaboration. and working and conferences for seminars, opportunities practice. best on discussion Work at regional level Advisory strengthened will Regional through the be of support functioning further effective for the which Committees will play an important and in role in collaboration the developing reduced and prevented (Gamache and Asmus, Asmus, so and of are that violence incidences domestic (Gamache prevented and extent reduced some To 1999). Pence, and Shepard in is being approach council the co-ordinating taken in the through Ireland work of new Committees. Advisory Regional of8 TheAction purpose is and to support enable across collaboration State agencies and NGOs. Cosc will continue its work, leading activity to promote opportunities and of sharing information for networking, collection within HSE-funded services services HSE-funded within collection sexual and domestic of victims for violence services as part of its work on on work its of part as services data improved and standardisation Develop proposals for improvement improvement for proposals Develop Review the availability of counselling counselling of availability the Review
9.2 Activities 9.1 domestic and sexual violence accessibility to counselling services for victims of Ensure reasonable reasonable Ensure able 9 Action 9 T Counselling is an important part of the 5 2. 7. Action 10 Policy guidelines for local holistic approach that many support services offer to victims of domestic and sexual Another specific action to achieve the authorities will be developed violence. The need for counselling and objective of improving protection and through the Cross- psychological services is set out in a number support for victims is ensuring effectiveness of international documents. Many agencies and consistency in housing responses. While Departmental Team on in Ireland, both State and non-State, provide it may be preferable for a victim to remain Homelessness in consultation counselling services to victims of domestic in the family home, it is not always safe or and sexual violence. The Council of Europe possible to do so. The violence may be so with the National Homeless 2008 study on minimum standards for acute as to afford no alternative but to leave Consultative Committee support services recommends minimum the family home urgently. Some victims standards that should be adopted by all move, with or without children, to family and Cosc. domestic and sexual violence services that or friends, seek emergency accommodation provide counselling, as well as by general from local authorities or move to refuges. counselling practices (Kelly and Dubois, In order to prevent once-off or repeat 2008). These standards cover training homelessness and to support the safety and for counsellors, the creation of individual long-term recovery of the victim, a range action plans for clients that address safety, of safe, accessible and holistic solutions is support and practical needs, and the issue required. of referrals. Counselling and mediation are the most often used supports for proven While there may be differences in practice by instances of elder abuse. Further research local authorities in relation to the handling is needed to judge their effectiveness as a of domestic violence as a valid reason for response to elder abuse. homelessness, research has shown that domestic violence does lead to homelessness in In the context of this strategy, counselling some cases. In 2006 the Fitzpatrick Review34 refers to one-on-one counselling with either noted that ‘domestic violence was a key factor the victim or the perpetrator or sometimes in the homelessness of women and children group therapy with victims or with and should be recognised as such’ (p.134). perpetrators. This definition of counselling The review recommended that victims of does not include counselling of a couple, domestic violence should be recognised as an family counselling or any form of mediation. at-risk target group. While women are more Indeed there is a broad body of evidence than twice as likely as men to be victims of to suggest that couple counselling or severe abuse (15 per cent compared to 6 per mediation is not suitable for either victims or cent) (p.53),35 it is likely that men are also at perpetrators of domestic or sexual violence. risk of homelessness due to domestic violence either as victims or perpetrators. There is also Action 9 of this strategy aims to ensure evidence that repeat victimisation can occur reasonable accessibility to counselling and that domestic violence is a factor in repeat services for victims of domestic and sexual homelessness. In Scotland, local authorities violence. The HSE will examine the cite domestic violence as a main cause of repeat provision of counselling services within homelessness (Pawson, 2001; ODPM, 2003). HSE-funded services for victims of domestic and sexual violence, as part of its work on In order to ensure effectiveness and 34 Fitzpatrick Associates Economic Consultants (2006), standardisation and improved data analysis. consistency in responses, policy guidelines for Review of the Implementation of the Government’s This will be followed by the development local authorities will be developed through the Integrated and Preventative Homeless Strategies. and implementation of proposals to improve Cross-Departmental Team on Homelessness Dublin: Stationery Office. the current situation. in consultation with the National Homeless 35 Watson and Parsons (2005).
[84] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [85] the National Homeless Consultative Committee, as appropriate Cross-Departmental Cross-Departmental on Homelessness, Team in consultation with Implementation structure Cross-Departmental Homelessness, on Team in consultation with the National Homeless Consultative Committee, as appropriate
programme of action action of programme developed Committee, as as Committee, This appropriate. be will guidance by supported relevant on research experience, aspects, practice best and internationally Q4 by developed address to 2010, to: relating matters and need housing application consistent ‘homelessness’ of policies provision of extent emergency of accommodation with 2011 Q4 by consequential to be developed developed be to Cross- the through Team Departmental Homelessness on in Cosc, with the with consultation Homeless National Consultative Evaluation completed completed Evaluation (b) Policy Guidance Guidance Policy (b) (a) Policy guidance guidance Policy (a)
10.1 10.1 of Assessment 1. allocation Housing 2. and Nature 3. 10.2 Progress Progress indicator 10.1 authorities, HSE DEHLG (Lead), Cosc, local Indicative list of key bodies DEHLG (Lead), Cosc, local authorities, HSE to help persons maintain maintain persons help to 3 extent of victim homelessness homelessness victim of extent violence, domestic from arising and approaches evaluate as such initiatives of experiences etc., support, security rooms, safe context Irish in role consider and their new housing tenancies housing new their setting out a clear understanding understanding clear a out setting the and violence domestic of a as housing of importance and preventative homelessness guidance The action. responsive of range the cover also would be to options accommodation implemented and considered covering authorities local by long- and emergency preventative, solutions accommodation term as supports, housing related with necessary, authorities on their housing remit remit housing their on authorities violence, domestic to relation in In the context of minimising the the minimising of context the In Develop policy guidance for local local for guidance policy Develop
10.2 Activities 10.1 effectiveness and effectiveness consistency in housing responses Ensure Ensure able 10 Supports to help the successful transition from Action 10 T homelessness to living in mainstream housing, tapering offin line with this progression. 36 Table 11 Indicative list of key Progress Implementation Action Activities bodies indicator structure 11 Examine a one- 11.1 Develop proposals for multi-agency Cosc (Lead), 11.1 Proposals developed Implementation structure stop-shop option one-stop shop for victims of domestic HSE, Garda, by Q4 2010 to be part of proposals for for greater and sexual violence FSA, one-stop shop accessibility to DCRGA services for victims 11.2 Implement pilot of one-stop shop 11.2 Pilot implemented by of domestic and Q3 2011 sexual violence 11.3 Review pilot and implement outcome 11.3 (a) Pilot reviewed by of review Q3 2012 11.3 (b) Proposals revised and implemented by Q3 2013
Consultative Committee and Cosc. These are the Gardaí, legal advice services, and guidelines will set out a clear understanding community-based support services. The of domestic and sexual violence and the easy accessibility of a broad range of services, importance of housing as a homelessness or of information about such services, on preventative response. The document will one site, is a practical support to a victim also cover the range of accommodation at a traumatic time. A secondary outcome options to be considered and implemented of the one-stop-shop model is that it can by local authorities, covering preventative, engender confidence between agencies emergency and long-term accommodation offering their services and improve co- solutions with related housing support. ordination and the sharing of information in individual cases.
5 2. 8. Action 11 There is potential for the one-stop-shop model to provide great benefit to victims In addition to these specific improvements, of domestic and sexual violence and to also a broader perspective is necessary to benefit the support services contributing to address the often complex needs of victims. the project. The victim is the focus of the This complexity may present practical work of a one-stop shop. Other models of difficulties for a victim when attempting inter-organisational working may retain to access the range of services working in the tension between internal organisational this area. A possible solution to this is the focus and joint working. In a one-stop shop, establishment of one-stop shops. each organisation is clearly committed to putting the victim at the centre and jointly The primary purpose of the ‘one-stop-shop’ working to support the person to overcome model of service provision is to reduce the the trauma involved with the experience of number of locations and organisations that domestic and sexual abuse. Some models victims of domestic and sexual violence include specific follow-up of offender must visit to receive basic support services. behaviour which strengthens working This model of service provision provides between support services and agencies access to the appropriate service at the right in the justice sector. Outcomes have been time in a safe and trusted environment. The demonstrated in relation to reduced rates of main partners identified in such a resource repeat victimisation and increased rates of
[86] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [87] Implementation structure Justice Committee Justice Committee
Justice Committee Committee Justice Proposals considered considered Proposals necessary to consider attrition attrition consider to make to and research by Cosc to proposals 2010 Q4 implemented and if basis phased a on
Progress Progress indicator 12.1 12.2 Service, Service, DJELR Indicative list of key bodies (Lead), Cosc Garda, Courts Service, DJELR (Lead), Cosc Garda, Courts problem in Ireland in recent years. strategy The includes a specificto action minimise (12) attrition levels in domestic final stage ofcourt proceedings.It should benotedthatcases notbemayprogressed through the system due, for example, to insufficiency of evidence. place, take not Thisdid incident an that decision is not a but rather that the evidence in prosecutionthea enough fromstrongnotwas case perspective. While there is some debate court specificattrition of in level theabout cases arising from domestic and abuse, there sexualis no doubt that attrition is a problem to be effort has tackled. been invested in examining this Considerable divided between those aimed at perpetrators perpetrators at aimed those between divided of domestic violence and those aimed at perpetrators of sexual violence; and they address not just perpetrator programmes but also attrition rates, risk management legislation. and Attrition, in cases of domestic and sexual violence, relates to the lack of progress on tocompletion of criminal cases, and more specifically, to the stages at whichdrop casesout from thecriminal justice system, that is, from the initial report stage to the Actions 12-18 fall under the final objective objective final the under fall 12-18 Actions of High-Level Goal offending Two: behaviour. to These address actions are Develop a greater understanding of of understanding greater a Develop Develop proposals to minimise minimise to proposals Develop attrition in domestic and sexual sexual and domestic in attrition appropriate, where cases, violence the of examination an including in hearings pre-trial of feasibility cases violence sexual the extent and nature of attrition in in attrition of nature and extent the cases violence sexual and domestic
12.2 Activities 12.1 ction 12 12 ction a domestic and sexual sexual and domestic cases, violence appropriate where Minimise attrition in in attrition Minimise 9 . 2 able 12 . Action 12 T necessary necessary to consider services provided to behaviour. offender address However, in However, order to achieve an effective and consistent service to those by domestic and affected sexual it violence, is also we have seen above, Actions 5-11 focus Actions on we seen have above, the protecting and supporting on victim: the victim and on service provision. improving achieve High-Level Goal Two – to achieve High-Level Goal Two deliver an and effective service consistent to those As violence. sexual and domestic by affected 5 All of the actions in this chapter aim to take into account the outcome of the review review the of outcome the account into take accordingly. implemented be will and of a pilot programme. The pilot willreviewed be and will evaluated. shops one-stop of development further Proposals for stop stop shop. In conjunction for proposals with will draft Cosc organisations, partner feasibility the scope will and shops one-stop multi-agency multi-agency one-stop shops for victims of domestic and the implementation of sexual a pilot violence of a and one- Clarity of purpose and clear protocols must must protocols clear and purpose of Clarity be established in order to ensure that the model works. Action 11 of this strategy involves the development of proposals for reporting (Robinson and Tregidga, 2005). Tregidga, and (Robinson reporting Table 13 Indicative list of key Progress Implementation Action Activities bodies indicator structure 13 Use vetting 13.1 Improve legislative provisions on DHC, 13.1 Vetting legislation No specific structure arrangements to vetting OMCYA, improved and necessary provide greater DJELR brought into protection for operation by Q4 2011 victims of domestic and sexual violence 13.2 Strengthen vetting arrangements for 13.2 Legislation effectively those who may come into contact enforced (ongoing) with potential victims of domestic and sexual violence
violence and sexual violence cases, where issues and their impacts. Apart from the appropriate. This will include examining consequences for perpetrators, developing recent research with a view to making and improving these programmes also has proposals for implementation to improve extremely important consequences for the the situation. safety of victims. The actions are primarily focused on convicted offenders. However, situations arise where for a variety of 5 2. 10. Action 13 reasons sexual violence perpetrators remain outside the criminal justice system. The Management of Sex The purpose of vetting is to protect vulner- There may be opportunities to manage the able individuals. Vetting mainly entails the risks posed by such individuals and Action Offenders Group will build on carrying out of Garda checks on applicants 14 includes an exploration of intervention its recent report by developing for jobs which involve access to vulnerable in such cases. individuals. Having in place an effective policy and provision for pre- vetting process is one method of reducing the Action 14 aims to strengthen measures sentence risk assessments for risk of re-offending by abusers. The process to manage the risks posed by sexual and will be strengthened by underpinning domestic violence perpetrators. As set out sexual violence offenders. legislation and enforcement. This is reflected in Chapter Three, work is underway on in Action 13 of this strategy. the development of a system for assessing and managing the risk posed by convicted sex offenders. The Management of Sex 5 2. 11. Action 14 Offenders Group will build on its recent report by developing policy and provision Actions 14-16 cover activities to manage and for pre-sentence risk assessments for reduce the risks posed by the perpetrators sexual violence offenders, and further of domestic and sexual violence. Domestic develop risk management arrangements for and sexual violence are complex issues convicted sexual violence offenders. There and therefore programmes addressing the are significant complexities associated with offending behaviour of perpetrators of risk management of unconvicted sexual such violence must be carefully designed violence perpetrators but action will be and implemented, and be based on a taken to explore a feasible system to tackle solid awareness and understanding of the this problem.
[88] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [89] Justice Committee Implementation structure Management of Sex Group Offenders Management of Sex Group Offenders ction 15 ction
A 12 12 . 2 . resulted resulted in reducing recidivism rates. The Collaborative Outcome Data Committee (Hanson et al, 2002) reported on a meta- analysis of 43 independent studies dating from 1980 to 2000. Thestudy found that the general recidivism rate or for those re-offending who had programmes was 32.3 participated per cent in compared with 51.3 per cent for those in untreated control groups. In 2003 McGrath et al on on the development of a model of to perpetrators domestic for suitable application Ireland. in violence 5 perpetrators for interventions to relation In of sexual two violence, recent studies have found that intervention programmes have
legislation) by Q4 2011 Q4 by legislation) approach agency 2013 Q2 by explored risk perpetrator model management and developed by implemented 2013 Q4 light of finalised Report Report finalised of light Sex of Management of by Group Offenders 2010 Q4 bringing (including of operation into Implementation Implementation Domestic violence violence Domestic Feasibility of multi- of Feasibility Policy formulated in in formulated Policy
14.3 14.4 Progress Progress indicator 14.1 14.2 Service Cosc (to facilitate) Cosc (to facilitate) Indicative list of key bodies DJELR, IPS, Garda DJELR, IPS, Probation of women had not been re-victimised (Robinson MARAC in the following year the and 2005). Tregidga, Cosc will lead work multi-agency approach to domestic violence violence domestic to approach multi-agency has the through use been advanced greatly Centres Assessment Risk of Multi-Agency in were MARACs pioneered (MARACs). Cardiff in 2003 and involve key health, agencies education, probation, police, as such housing and the working voluntary sector, The case. victim’s an individual on together in high-risk victim safety aim is to increase information relevant sharing cases through and agreeing action. An evaluation of the MARAC system, carried out by Cardiff in that found 47 2005, per cent University The multi-agency will offenders violence ofsexual assessment approach to relation in work for ground to some prepare risk the UK the In offenders. violence domestic management arrangements arrangements management violence domestic high-risk for perpetrators perpetrators arrangements management violence sexual convicted for perpetrators management risk agency unconvicted for arrangements perpetrators violence sexual assessments for the courts in in courts the for assessments violence sexual convicted to relation Further develop current risk risk current develop Further Develop and implement risk risk implement and Develop Explore the feasibility of multi- of feasibility the Explore Provide for pre-sentence risk risk pre-sentence for Provide
14.4 14.2 14.3 Activities 14.1 by sexual and domestic violence perpetrators measures to measures manage the risks posed Strengthen Strengthen able 14 Action 14 T Table 15 Indicative list of key Progress Implementation Action Activities bodies indicator structure 15 Strengthen 15.1 Monitor and review implementation DJELR, IPS 15.1 Sexual violence IPS measures to deal of new prison treatment programme programmes with sexual violence for convicted sexual violence reviewed by end perpetrators perpetrators 2013
15.2 Integrate custodial and community DJELR, 15.2 Review operation DJELR intervention programmes for HSE, of community convicted sexual violence Probation programme provision perpetrators Service, by end 2012. Garda, IPS Implement review outcome by end 2013
15.3 Develop best practice actions Cosc (to 15.3 Identify best for dealing with sexual violence facilitate), practice suitable for perpetrators in the community and Garda, HSE implementation by outside the criminal justice system end 2013
demonstrated a significantly lower rate able to engage with the therapeutic services of sexual re-offending in offenders who will be able to avail of interventions. completed a prison-based programme (5.4 per cent) compared with offenders who did Initiatives to improve offender participation not attend a programme (30 per cent). rates include motivational work and regime enhancements. Prisoners unwilling to Therefore interventions in prison have engage will be transferred out of Arbour the potential to reduce the risk posed by Hill Prison to make way for other sexual offenders. A new programme of prisoners. For suitable prisoners in the group interventions, entitled ‘Building latter stages of their sentence, the policy Better Lives’, is being introduced in Arbour envisages that consideration will be given Hill Prison. The programme comprises to transfers to open prisons and, possibly, three modules: Exploring Better Lives, periods of supervised early release subject Practising Better Lives and Maintaining to strict conditions. These measures Better Lives. The first module commenced constitute strong incentives to participate in January 2009, the second in May 2009 in interventions but, equally important, and the third later in the year. The suite they can play a vital role in helping of group interventions replaces the Sex offenders resettle in their communities Offender Programme initiated in 1994 and after imprisonment. Decisions in individual concluded in 2008. Individual therapeutic cases will take full account of the concerns interventions will also continue. of victims where known.
The group interventions are estimated to The Department of Justice, Equality and reach about 60 prisoners in a full year. This Law Reform will work closely with the level of intervention will ensure that, when Prison Service in order to monitor and the programme is fully operational, all sex review the implementation of the new offenders who are serving sentences of at prison treatment programme for sexual least one year and who are willing and suit- offenders.
[90] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [91] Implementation structure Domestic Violence Perpetrator Programme Committee
operation and co- and operation victim with ordination services support mechanisms for co- for mechanisms victim with ordination and services support victim of capture developed feedback) 2010 Q3 by 2011 Q2 from (c) Increased co- Increased (c) (b) Plan implemented implemented Plan (b)
(a) Plan (including (including Plan (a) 16.1 Progress Progress indicator 16.1 16.1 Indicative list of key bodies (Lead) Cosc Throughthe of establishment a Domestic Programme Violence Perpetrator Comm- Service. Service. Since the 1980s, a perpetrator network of programmes has around developed the programme, a to specific adhere facilitators country. others Whilst select some differentdifferent programmes elements when appropriate from (Debbonaire, 2009). Preliminary work by Cosc suggests that there is now a need to clarify what types of perpetrators are accessing programmes, to identify who is benefitingfrom these programmes and to work best with examine which approaches perpetrators. different and some may have multiple problems and problems multiple have may some and complex needs. These multiple problems complicate their ability to interventions and/or their respond motivation evaluations to to Therefore 2004). (Scott, change of perpetrator programmes should focus on what kind of interventions work best whom. for and Domestic Violence rammes Perpetrator in are Ireland through a delivered prog- ofcombination NGOs and the Probation Perpetrator Programmes to ensure ensure to Programmes Perpetrator effectiveness greater their Strengthen Domestic Violence Violence Domestic Strengthen
Activities 16.1 ction 16 ction A perpetrators measures measures to deal with domestic violence Strengthen Strengthen 13 13 . 2 able 16 . Action 16 T increase a victim’s safety. However, domestic domestic However, safety. victim’s a increase violence are perpetrators not homogenous successful successful for some people and can result in changed behaviour and a reduction in recidivism and therefore can significantly at at the overall effectiveness of perpetrator programmes is not the correct approach. are programmes that shows evidence Some contributions to victim safety. victim to contributions However, evidence suggests that looking account account all the other possible sources of impetus to change. Most evaluations have failed to the full consider of range possible have have no effectbut these are supported by other hand, other the On evidence. tenuous evaluations appear to demonstrate strong programme effect but do not take into disputed disputed (Babcock et al, 2004; Babcock et al, programmes that demonstrated 2008). apparently Some evaluations have of domestic violence perpetrator rammes prog- is and debated been have widely effectiveness mixed, and criteria for 5 effectiveness the to relation in evidence The Table 17 Indicative list of key Progress Implementation Action Activities bodies indicator structure 17 Update the law on 17.1 Review and improve legislative DJELR 17.1 (a) Sexual offences DJELR with Cosc sexual offences provisions on sexual offences legislation brought into operation by Q4 2011 17.1 (b) New legislation effectively enforced (ongoing) 18 Update the law on 18.1 Improve legislative provisions DJELR 18.1 (a) New domestic DJELR with Cosc domestic violence protecting victims of domestic violence provisions to give further violence brought into operation protection to by Q4 2010 victims 18.1 (b) New legislation effectively enforced (ongoing)
ittee, Cosc will develop and implement a a report, to respond, or to refer to a more and further developed by a range of actors plan to strengthen perpetrator programmes specialised service. We know that there are including the Irish Prison Service, the through measures including in particular: problems with disclosure, reporting, attrition Probation Service, the Department of and effective response. The central aim of the Justice, Equality and Law Reform and An » Strengthened co-operation and co- actions set out in this chapter is to deliver Garda Síochána. ordination between programmes and an effective and consistent service to those other relevant service providers affected by domestic and sexual violence. These actions, together with the primary » The development of a Perpetrator interventions set out in Chapter Four, Programmes Outcome Study Through an examination of research, are key building blocks in the framework » The implementation of results from international responses and material for sustainable intervention envisaged by the Perpetrator Programmes Outcome gathered from submissions, conferences and the strategy. The following chapter deals Study. consultations, actions have been identified with the underpinning of the two levels of to improve service provision. Improved intervention through structured overview service provision will increase confidence in and strategic, evidence-based planning. 5 2. 14. Actions 17 and 18 disclosure and reporting. The challenges to intra- and inter-organisational co-ordination The final actions in this area aim to have been examined. address the accountability of offenders and strengthen the protection of victims through In addition to increased multi-agency review and any necessary improvement of working and improved collaboration, this legislation on sexual and domestic violence. chapter sets out specific action to improve the safety of victims through effective and consistent housing responses, as well as 5 3. Conclusion improvements in the area of counselling and vetting. Secondary interventions are those that are applied once an incident has occurred and Actions focusing on offender behaviour are there is a direct role for services to deal with also covered, with activity to be undertaken
[92] INTRODUCTION CHAPTER 1 CHAPTER 2 CHAPTER 3 CHAPTER 4 CHAPTER 5 CHAPTER 6 CHAPTER 7 NG I LANN P VICE R E S D Y AN ix S IC L O Chapter P Chapter Six Policy and service planning
The lack of consistent 6 .1 ntroduction policy and service planning through improved data capture and data co- information about the number Previous chapters have referred to the ordination of people affected by domestic range of activity currently happening in » To ensure that policy development Ireland to counter domestic, sexual and and service provision planning are and sexual violence limits in gender-based violence. Chapters Four and evidence-based and take account of several ways our ability to Five set out actions to be taken to deliver the experience of victims improvements in primary and secondary » To ensure greater co-ordination respond to the problem. interventions. This strategy builds on between relevant organisations current activity and aims through the » To provide a solid foundation for various actions to realise a co-ordinated, future actions on domestic and sexual cohesive and effective system. As we plan violence. future developments, we need to know which activities are having the greatest The first and most fundamental action impact and whether activities are meeting required is the development of a systematic identified needs. We need to understand approach to data capture and collation. better how to plan both policy and service The lack of consistent information about developments. While activity may have the number of people affected by domestic impact, we know that co-ordinated and and sexual violence limits in several ways strategically planned activity is required our ability to respond to the problem. for greater impact. First, it limits our ability to gauge the extent of these forms of violence. Second, This strategy is the culmination of a it limits our ability to identify those groups combined effort by a broad range of at highest risk who might benefit from organisations and individuals. It is focused intervention or increased services. important that all this effort leads to Third, it limits our ability to monitor a successful conclusion. But, far more changes in the incidence and prevalence importantly, it is critical to people’s lives of violence over time. This in turn limits that the actions are effective and that the our ability to monitor the effectiveness strategy works. Because this strategy is of violence prevention and intervention the foundation for future developments, it activities. Higher quality and more timely must deliver positive impact. data have the potential to be of use to a wide audience, including policy makers, With this in mind, High-Level Goal researchers, public health practitioners, Three is overarching and strongly supports victim advocates, service providers and the actions on primary and secondary media professionals. intervention. In Ireland we rely on multiple and disparate sources of data to obtain incidence, 6 .2 high-Level Goal Three prevalence and background information regarding domestic and sexual violence. To ensure greater effectiveness of policy A key source of data is the system and service planning of administrative records in Ireland. The criminal justice system is highly The objectives of this High-Level Goal organised, with mechanisms for regular are: statistical reporting, e.g. the reporting of PULSE (Garda Síochána) data, and the » To improve the effectiveness of courts Criminal Case Tracking System
[94] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [95] Implementation structure Cosc-led data committee
Action 19 of the strategy is aimed at improving data on domestic and sexual violence.
developed by Q4 2010 implemented by Q2 2011 (a) Data plan (b) Data plan
Progress Progress indicator 19.1 19.1 Indicative list of key bodies (Lead), Cosc Garda, HSE, Probation Service, Courts Service, OOP CSO, ction 19 Align with best (international) Identify Identify and examine the specific a
1 . » practice for data collection, collation, reporting and analyses » operational difficultiesdefinitional differences) (such of collection data systems in existing as 2 . This action involves practice adhering around to data best implementation management. will Its have regard to confidentiality, the anonymity and requirements. Foundation privacy work on this action has already begun with gressing the of a pro- data project, currently being to: aiming Cosc, by out carried Action Action 19 of the improving strategy data is on domestic aimed and at violence. sexual This will involve working with the relevant organisations and to improve develop data, the statistical including potential of data realising collected for administrative and purposes. Much of these data research/policy is gathered for internal organisational purposes but, in a controlled and planned system of co- ordination, would be of immense benefit effectiveness. broader for 6 data collected for administrative purposes) and research/policy to develop and improve domestic to develop and improve and sexual violence data (including Work with all relevant organisations organisations with all relevant Work
Activities 19.1 Improve data on Improve domestic and sexual violence
able 18 Action 19 T on the incidencedomestic and sexual violence. and prevalence of inconsistencies not analysis only of disparate sources prevent of data but can result the in a wide variety of conclusions not surprisingly, commonplace, resulting in a lack of consensus on definitions and practices around data aggregation. Such Inconsistent Inconsistent recording practices and, for example, different classification systems between agencies and across sectors are, systems are not usually developed on an intra-organisational basis, rather for solely internal organisational purposes. and records kept vary range of considerably information and in quality. These systems, over separately time, and in have differentways. developed Data be reported to An Garda Síochána than to other bodies. People using refuges may ofabusedvictims,allrepresentative be not reporting data. Some types of violence are more likely to providers. providers. NGOs who provide front-line services to victim/survivors of are increasingly violence collating, processing and source of statistics on various violence. forms of Victims who and sustain require treatment may go to hospital injuries emergency services or other health-care (CCTS). (CCTS). The health sector is another Table 19 Indicative list of key Progress Implementation Action Activities bodies indicator structure 20 Ensure improved 20.1 Develop an evaluation framework Cosc (Lead), 20.1 Effective Independent external impact evaluation for assessing cross-organisational HSE, Garda, arrangements to organisation strategic impact to ensure Probation monitor and review maximum system effectiveness Service, organisational Courts response in place Service, in all key State OOP organisations by Q4 2012
20.2 Encourage consultation with Cosc (Lead) 20.2 Consultation held with Cosc (with NSC and NGO representative groups in the representative groups participation) development of policy and services on development of policy and services – ongoing
» Develop recommendations for approach to data, Ireland will be in a building domestic and sexual violence better position to evaluate effectiveness. data. This relates to changes required The aim of Action 20 is to develop an to improve the data collection, data evidence-based approach to assessing analysis and reporting of domestic effectiveness of activity and impact. and sexual violence data arising from Chapter Three outlined the variety of administrative and other sources of stages of development of services and relevant data in Ireland. organisational policies in Ireland. Some organisations delivering services do not The outcome from this work should have a policy on domestic and sexual contribute to informing policy develop- violence, some are quite advanced in policy ment in the area of domestic and sexual development, but few are co-ordinating violence, while including the experience with related organisations. of clients in a secure and confidential manner. The definition or specification Co-ordination of activity will bring of what information should be collected improvements for victims, but co- should be demand-led and based on ordination with a view to increasing real need. Furthermore, data collection, strategic impact is the acid test. It is not collation and analyses should go beyond enough that one organisation is producing the estimation of prevalence and should positive impact if another related part of provide a broader range of information to the system is weak. The aim is to build inform policy development in the field. confidence among those affected that the system is understanding, supportive, positive and clearly responding to needs. 6 2. 2. action 20 It is vital to be able to measure, assess and evaluate the broader system in order to The output from Action 19 leads directly understand the overall impact of all this into Action 20. With an improved activity.
[96] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [97] No specific structure No specific structure needed. Cosc to drive Implementation structure of co-ordinated research full, clear so picture that is quickly available the as to all possible. as unrelated At efforts best, will separate, delay thatAt clarity. worst, the research be effective effort in will grounding or not influencingservice and policy planning. Through the development of a co-ordinated research programme, efforts in this area will have greater impact. research recommendations. It is important is It recommendations.research that research is strategic maximum benefit. There and is little value achieves in research on a particularly specific area if the overall picture is vague. Sinceits establishment in 2007, Cosc has workedwith its stakeholders to develop a more co-ordinated approach to research and evidence gathering. Theof basicthis work has aim been to develop a solid baseline for the Through situation this programme, in aspicture Ireland. the basic becomes specific clearer, areas research can be on not added.limit the Thiscommissioning does or carrying out of research to any one organisation. It aims to encourage the development
basis research programme programme research and planned each implemented year and disseminated implications policy ongoing – up followed (a) Co-ordinated Co-ordinated (a) Research (b) Progress Progress indicator 21.1 21.1 Indicative list of key bodies (Lead), Cosc OOP HSE, ction 21 ction a 3 . 2 . on an ad hoc basis. There has been little co-ordination between stakeholders and the potential eventual implementers of fear for safety recovery. Their and experience has opportunities informed assessinginstrategyhelpwillalso thisand for activity effectiveness and impact. 6 It is obvious that robust there evidence to is underpin service a and need policy for planning. Until recently, research on domestic andIreland has sexual generally violence been in developed Impact cannot be data. All assessed the solely activities involve in by this human strategy responses interpersonal relationships. to This complex is why the true picture of impact also the taking requires into account of the experience of victims in service policy development planning. and victims Consultations during the development with of strategy this proved an invaluable source information of on areas such as barriers to disclosure, attitudes in service provision, co-ordinated research programme programme research co-ordinated Encourage the development of a Activities 21.1 Promote the design Promote of planned research of planned research policy to ground development and service planning
able 20 Action 21 T At the end of this five-year 6 .3 Conclusion knowledge we will be in a better position to plan a further improved system for those strategy, we will have a better The purpose of High-Level Goal Three is affected by the horrific crimes involved. understanding of the impact of that action is targeted towards maximum, The implementation of actions under co-ordinated impact in order to provide High-Level Goal Three complements and various actions and activities. a solid foundation for the future strengthens the actions to improve primary With this knowledge we will development of action on domestic and and secondary interventions under High- sexual violence. Level Goals One and Two. be in a better position to plan a further improved system for At the end of this five-year strategy, we will The following chapter focuses on the final have a better understanding of the impact High-Level Goal which deals with strategy those affected by the horrific of various actions and activities. With this implementation and review. crimes involved.
[98] INTRODUCTION CHAPTER 1 CHAPTER 2 CHAPTER 3 CHAPTER 4 CHAPTER 5 CHAPTER 6 CHAPTER 7 N IO NTAT E M E L P M I W GY E EVIE even S R D TRAT AN Chapter S Chapter Seven strategy implementation and review
The improvement of policy 7 1. ntroduction This is a national strategy. It is a plan of action on how State services in Ireland and services is to be Earlier chapters demonstrated the problem will address domestic and sexual violence achieved through a co- of domestic and sexual violence in Ireland, in Ireland for the coming five years. The the response to date, the challenges improvement of policy and services is to be ordinated approach towards to progress and the actions to realise achieved through a co-ordinated approach the development of a strong improvements. Implementation of these towards the development of a strong actions is not an easy task but, through framework for sustainable intervention to framework for sustainable combined commitment, it is deliverable. prevent and effectively respond to domestic intervention to prevent and The development of this strategy has and sexual violence. Implementation of been an exercise in cross-organisational the strategy will be overseen by a Strategy effectively respond to domestic understanding, co-operation and collabor- Oversight Committee. and sexual violence. ation. The structures built during the strategy development will be key vehicles The Strategy Oversight Committee was to further develop co-operation and established in June 2009 and its first collaboration. meeting took place on 23 June 2009. To date, the purpose of the committee has The critical impetus for this strategy was been to review progress on the development concern at consistent evidence of the high and finalisation of the National Strategy. level of prevalence and low level of disclosure Following government approval of the and reporting of domestic and sexual strategy, the role of the committee is violence. A comprehensive examination to monitor its implementation. The of the system, along with a consideration committee will also assist in identifying of research, extensive consultation, and a solutions to any delays in implementation. high level of engagement from all relevant stakeholders, have contributed to the first The Committee is chaired by Mr Seán national statement of policy on domestic Aylward, Secretary General, Department and sexual violence. The progress indicators of Justice, Equality and Law Reform, for the various actions are set out in and the other committee members are as previous chapters. However, the strategy follows: must deliver overall impact. » Mr John McCarthy, Assistant Secretary, Department of the 7 2. high-Level Goal 4 Environment, Heritage and Local Government To ensure efficient and effective im- » Mr Derek Byrne, Assistant plementation of the National Strategy Commissioner, An Garda Síochána » Mr Phil Garland, Assistant The objectives of this High-Level Goal are: National Director, Child and Family Social Services, HSE » To ensure that the implementation » Ms Margaret Kelly, Principal of this strategy is effectively monitored Officer, Department of Education and » To ensure that the lessons learned Science from the implementation of this » Ms Geraldine Luddy, Principal strategy are taken into account in the Officer, Department of Health and preparation of the second national Children strategy on domestic, sexual and » Ms Éimear Fisher, Executive gender-based violence. Director, Cosc.
[100] Introduction Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 [101] Cosc to drive. No specific structure needed Implementation structure Cosc and on to Oversight Committee
(b) Strategy Progress (b) Strategy Progress (a) Reports, including (a) Conduct Conduct (a) review Prepare (b) from liaison process, liaison process, from submitted to Oversight Committee on time submitted to report Government on time first comprehensive progress of review and 2012 Q2 end by end by review second 2014 Q2 Oversight for reports end by Committee end by and 2012 Q3 2014 Q3 collated on time bi-annually on draft reports progress material derived Bi-annual reports Bi-annual reports Liaison takes place
22.3 23.1 23.1 Progress Progress indicator 22.1 22.2 22.3 Cosc (Lead) Cosc Indicative list of key bodies (Lead) Cosc Conclusion
3 . is is a positive action by the of Government Ireland to make improvements substantial to the lives of many people living in our be submitted to the Oversight Committee. be to Committee. submitted the Oversight The purpose of this review progress is and and effectiveness, to to provide assess a for foundation future national work on domestic and sexual violence. A review will similar take and place in 2014 strategy to this take of full experience the of account action. further determine to 7 The of development this national strategy
Submit progress report, including report, Submit progress Review effectiveness of strategy to Review effectiveness prepare for future work for future prepare material derived from liaison material derived from to Oversight Committee process, strategy progress strategy progress Liaise on draft progress reports Liaise on draft progress Collate bi-annual reports on Collate bi-annual reports
23.1 22.2 22.2 22.3 Activities 22.1 effectiveness effectiveness of strategy implementation the implementation of this strategy Ensure Ensure Monitor progress in Monitor progress
able 21 23.0 Action 22.0 T be carried out midway through the five-year five-year the through midway out carried be of duration and the a strategy, report will Government. will of strategy the review A comprehensive with NGOs. The Oversight Committee will will Committee Oversight The NGOs. with report progress to the General Secretaries of government departments and to the this report will be drawn from information will this be report from information drawn and from organisations by relevant supplied bi-annually be will held which consultations is fully briefed on progress, a will be report on is progress, briefed fully prepared by Cosc on the implementation of the strategy actions. The material for The Committee meets twice yearly. Inorder yearly. twice meets Committee The to ensure that the Oversight Committee society. Domestic and sexual violence affects By the end of 2014 in Ireland, there will be The intention of this strategy is all types of people in Ireland – women, men, children, and older people – regardless of age » Clearer societal acknowledgment of to set out a clear understanding or socio-economic class. There are particular the unacceptability of domestic, sexual of the complex problem challenges among marginalised groups such and gender-based violence as people with disabilities, members of the » Greater recognition and a broader of domestic, sexual and Traveller community, migrants and others understanding of domestic, sexual and gender-based violence in who are isolated. gender-based violence » Higher-quality and more consistent Ireland, the response to date, The intention of this strategy is to set out a services with greater confidence in the challenges to progress clear understanding of the complex problem service delivery of domestic, sexual and gender-based » Increased safety for victims and the actions to realise violence in Ireland, the response to date, the » Increased accountability of the improvements. challenges to progress and the actions to perpetrator realise improvements. The development of » Structured and improved planning the strategy has been an exercise in cross- and monitoring to ensure continued organisational understanding, co-operation effectiveness. and collaboration. This positive partnership approach will be further harnessed to Through the development of this framework implement the strategy and to deliver results. and the commitment of government departments and State bodies, working in Through this continued energy and partnership with all relevant services, this commitment it will be possible to achieve the strategy will deliver a strong foundation overall strategic objective – the development for an improved system of prevention and of a strong framework for sustainable response – Safer lives at home and in our intervention to prevent and effectively community. respond to domestic and sexual violence. The vision can be realised.
[102] B ib l i ography
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[106] B ib l i ography
Appendix 1 submissions received C hapter 1
Number Organisation/Individual C
1 Kristian Miccio hapter 2
2 Eastern Regional Planning Committee on Violence Against Women
3 Muriel McQueen Fergusson Centre for Family Violence Research
4 Miltown Institute of Theology, Philosophy and Spirituality
5 Tearmann Domestic Violence Services C hapter 3 6 The National Women’s Council of Ireland
7 Women’s Aid
8 Southill Domestic Violence Services
9 Iris Elliott C
10 The Senior Helpline hapter 4
11 Longford Women’s Link
12 Barnardos
13 Protection Services for older people (social worker HSE)
14 South East Domestic Violence Intervention Programme (SEDVIP) C hapter 5 15 National Traveller Women’s Forum
16 The National Disability Authority
Meath Women’s Refuge/ North Eastern Regional Planning Committee 17 on Violence Against Women C
18 Mayo Rape Crisis Centre hapter 6
19 Hilary Scanlon
20 Patricia Daly
21 Church of Scientology
22 Stop It Now Ireland C hapter 7 23 Law Department UCC
24 One in Four
25 SAVE (Southside Addressing Violence Effectively)
[107] Number Organisation/Individual
26 Aengus Ó Snodaigh, T.D., Sinn Féin
27 Dublin Rape Crisis Centre
28 Letterkenny Women’s Centre
29 Sonas Housing Association
30 Domestic Violence Response Galway
31 AkiDwa
32 The National Network of Women’s Refuges and Support Services
33 AMEN
34 Rape Crisis Network Ireland
35 The HSE
36 Family Planning Association
37 The Probation Service
38 Immigrant Council of Ireland
39 Domestic Violence Advocacy Service
40 Irish Association of Social Workers
41 Law Society of Ireland
42 Legal Aid Board
43 Pavee Point
44 Office of the Director of Public Prosecutions
45 Sexual Violence Centre Cork
46 Sligo Social Services
47 The Women’s Health Council
[108] A ppend i x 2 Appendix 2 C hapter 1
Table A: Decomposition of change in domestic Violence court orders granted (2001-2008)
Observed change Rate of DV Effect due Effect due to in number of court order to change in change in rate Interaction C
court orders applications Relative change number of of court orders between d1 and hapter 2 Number granted granted (r1) % (% of baseline) applications (d1) granted (d2) d2 (d3)
2001-2 -1,136 .60 -14.2 -867.80 -300.75 32.55
2002-3 -853 .60 -12.4 -922.09 79.78 -10.69
2003-4 -332 .61 -5.51 -187.90 -148.74 4.64 C
2004-5 -222 .60 -3.90 -30.94 -192.10 1.04 hapter 3
2005-6 493 .57 9.01 231.70 250.69 10.61
2006-7 830 .60 13.91 883.87 -46.92 -6.95
2007-8 -644 .60 -9.47 -592.37 -56.56 4.93
Total -2,543 -2,008.70 -561.80 27.50 C
01-05 hapter 4
Total +1,323 523.20 147.21 8.59 05-08
Total -1,864 -1,486 -415 36 01-08
Change 2001-08 C perc’tage 100% 80% 22% - 2.0 hapter 5 (total = 100%) C hapter 6 C hapter 7
[109] Table B: Refuge facilities in Ireland 37
West North East Mid-Leinster South
Region North West West Midwest North East Eastern Midlands South Eastern Southern
Name of Donegal COPE Adapt House Drogheda Aoibhneas Esker House AMBER, Adapt Refuge Women’s – Waterside Clare Haven Women’s Women’s Refuge Kilkenny Services Domestic House Services Refuge Refuge Women’s Violence Women’s Refuge Cuanlee Service Refuge Meath Bray Refuge Women’s Women’s Cuan Saor Mayo Refuge and Refuge Women’s Women’s Support Refuge and Support Service Rathmines Support Service Women’s Service Women’s Aid Refuge (Dundalk) Oasis House Saoirse Refuge Women’s Refuge Wexford Women’s Refuge
37 The vast majority of refuges in Ireland, while providing crisis emergency accommodation for women and their children who have experienced domestic violence, also provide other services such as information, advocacy, counselling, court accompaniment, referral services, etc., some of which are provided on an outreach basis.
[110] A ppend i x 2 C hapter 1
Table B: Support services provide support, information and advocacy for victims of domestic violence in Ireland C West North East Mid-Leinster South hapter 2
Region North West West Midwest North East Eastern Midlands South Eastern Southern
Name of Domestic Achill Ascend AMEN Dublin 12 Laois Carlow Mná Feasa Domestic Violence Domestic Women’s Domestic Support Women’s Aid Violence Advocacy Violence Support Tearmann Violence Service OSS Cork Support Service Services Service Domestic Service Against Service Violence Domestic Tralee C Inishowen Domestic Southhill Services Inchicore Abuse Women’s hapter 3 Women’s Violence Domestic Outreach Resource Outreach Response Abuse Centre Longford Centre Project Women’s Letterkenny Family Life SAVE Link West Cork Women’s Centre, Boyle – Southside Women Centre Addressing Offaly Against Vita House Violence Domestic Violence C Effectively Violence Project hapter 4 and Support Senior Service Yana, North Helpline Cork DV Westmeath Project Sonas Support Housing Service Association Against C Domestic hapter 5 SWAN Abuse (Southside Women’s Action Network)
Teach C Tearmainn hapter 6
WOVE
Women’s Aid C hapter 7
[111] Table D: Components of a support and advocacy service provided by support services
West North East Mid-Leinster South
Region North West West Midwest North East Eastern Midlands South Eastern Southern
Information 3 4 4 4 7 3 5 5 35 Provision
Emotional 3 4 4 4 7 3 5 5 35 Support
Court 3 4 4 4 7 3 5 5 35 Accompaniment
Other 3 4 4 4 7 3 5 5 35 Accompaniments
Advocacy 3 4 4 4 7 3 5 5 35
Aftercare 2 4 3 3 6 3 5 4 30
Counselling 3 4 3 4 7 3 5 5 34 Referral Service
Support Groups 3 2 3 4 2 3 1 1 19
[112] A ppend i x 3 Appendix 3 glossary C hapter 1
CCTS Criminal Case Tracking System FÁS Foras Áiseanna Saothair C
CEDAW UN Convention on the Elimination of all forms of FJCA Family Justice Centre Alliance hapter 2 Discrimination Against Women FNE Forensic Nurse Examiner CoE Council of Europe FSA Family Support Agency CRC The Convention on the Rights of the Child GBV Gender-based Violence CSO Central Statistics Office C
GP General Practitioner hapter 3 Cttee Committee HEA Higher Education Authority DCRGA Department of Community, Rural and Gaeltacht Affairs HIQA Health Information and Quality Authority
DEAO Dedicated Officer for Elder Abuse HIV Human Immunodeficiency Virus C
DEHLG Department of the Environment, Heritage and HSE Health Service Executive hapter 4 Local Government ICCPR The International Covenant on Civil and Political DES Department of Education and Science Rights
DHC Department of Health and Children IPS Irish Prison Service
DJELR Department of Justice, Equality and Law Reform IYJS Irish Youth Justice Service C hapter 5 DLP Dedicated Liaison Persons LAN Local Area Network
DRCC Dublin Rape Crisis Centre LHO Local Health Officer
DV Domestic Violence LISC Legal Issues Sub-Committee of the National Steering Committee on Violence Against Women DVIP Domestic Violence Intervention Programme C
MAG Multi Agency Group on Homeless Sex Offenders hapter 6 DVPIP Domestic Violence Perpetrator Intervention Programme MARAC Multi-Agency Risk Assessment Centre
DVSAIU Domestic Violence and Sexual Assault NAP National Action Plan Investigation Unit NAPS National Anti-Poverty Strategy EANIG Elder Abuse National Implementation Group C
NBCI National Bureau of Criminal Investigation hapter 7 ECHR The European Convention for the Protection of Human Rights and Fundamental Freedoms NCAOP National Council on Aging and Older People
EU European Union NDA National Disability Authority
[113] NEDVIP North East Domestic Violence Intervention Project SPHE Social, Personal and Health Education
NGO Non-Governmental Organisation STI Sexually Transmitted Infection
NNWRSS National Network of Women’s Refuges and SV Sexual Violence Support Services (SAFE) UN United Nations NSC National Steering Committee on Violence Against Women UDHR The Universal Declaration of Human Rights 1948
NSDA National Study of Domestic Abuse VCO Victims of Crime Office
ODPC Office of the Data Protection Commissioner WHO World Health Organisation
ODPP Office of the Director of Public Prosecutions
OMCYA Office of the Minister for Children and Youth Affairs
OOP Office for Older People
PASC Public Awareness Sub-Committee of the National Steering Committee on Violence Against Women
Q 1/2/3/4 Quarter 1/2/3/4
QAS Quality Assurance Standards
RAC Regional Advisory Committee
RCC Rape Crisis Centre
RCNI RAPE Crisis Network Ireland
RPC (former) Regional Planning Committee
RSE Relationships and Sexuality Education
SARA Spousal Assault Risk Assessment
SATU Sexual Assault Treatment Unit
SAVI Sexual Abuse and Violence in Ireland Report
SEDVIP South East Domestic Violence Intervention Project
SLA Service Level Agreement
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