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DRAFT
National Domestic
Violence Delivery
Plan
March 2007
1
MINISTERIAL FOREWORD
This year has seen more dedicated action against domestic violence and
effective action has been taken at all levels of the delivery chain.
As with last year, the centre piece of the National Delivery Plan for Domestic
Violence has been the continued expansion of the Specialist Domestic Violence
Court (SDVC) Programme and its multi-agency component approach to putting
victims at the heart of the Criminal Justice System (CJS) which is continuing to
produce significant improvements and criminal justice outcomes.
This approach requires continued action by single agencies such as the police,
CPS, courts and probation and the targets set in 2005 will be pursued with
greater vigour.
Emerging from the SDVC Programme has been the Multi-Agency Risk
Assessment Conferences (MARAC) and the role of the Independent Domestic
Violence Advisor (IDVA). These initiatives, we believe, should be the central
focus in the coming years, with the continued development of SDVCs. Through
the MARAC and the IDVA we will continue to produce better CJS outcomes but
also protect victims from serious injury or even homicide as well as bringing
perpetrators to justice. We aim to develop further IDVAS and MARACs
independent from, as well as linked to, SDVCs.
That is why on the 5th March, the Home Secretary announced a further £1.85
million to roll out MARACs across the country. Embargoed: This will be
supplemented by a further 3 year package of £9m to enable IDVAs to be
employed as caseworkers to support the MARAC.
When the Domestic Violence Crime and Victims (DVCV) Act 2004 received
royal assent in November 2004 it was agreed that sections of the Act would be
rolled out in stages, as and when resources became available. In December
2006, the Prime Minister announced that the outstanding sections would be
introduced from 1st July 2007. This will complete the suite of measures aimed at
providing better legal protection for victims and their children.
Homicide Reviews
2
Section 9 of the DVCV Act creates a statutory basis for establishing and
conducting domestic violence Homicide Reviews of the circumstances in which
the death of an adult has or appears to have resulted from violence, abuse or
neglect by: a person to whom they were related to; or had been in an intimate
relationship with, or was a member of the same household.
In last year’s report we identified the Specialist Domestic Violence Court model
as the catalyst for a more coordinated approach to domestic violence. Building
on the experience of the SDVC Programme and what we know from UK and
other international research, the Domestic Violence Virtual Unit have been
working on developing and refining this model to see how this could work to best
effect in practice. The current model was designed for those partnerships which
may have a range of complementary services but do not have an SDVC.
We believe this model is the best way forward to ensure that limited local
resources are targeted at the most vulnerable victims using the available public
protection frameworks as the pivotal mechanisms.
There has been a case made for closer working between government
programmes particularly in the areas of domestic and sexual violence as they
are so closely linked by victim and perpetrator profiles. In the coming year we
will see a greater collaboration between the domestic violence and the sexual
violence action plans which will help local partnerships deliver through local
partnerships.. Although there are distinct differences associated with each of the
crime types, there is much in common with the victim support and criminal
justice approaches which makes it sensible to merge the programmes.
The Sexual Violence Action Plan for 2007/08 will be published in March 2007
but guidance for local partnerships has already been issued in June 2006 asks
them to develop a Coordinated Community Response to include sexual
3
violence and domestic violence using a template which has its origins in the
SDVC Programme.
4
CONTENTS
Page
Foreword
Executive summary
Introduction
5
EXECUTIVE SUMMARY
Among Employers we have seen innovative work in the past year. In particular,
the progress made among government departments in training their staff,
developing domestic violence policies and raising awareness of the issues. Of
particular note is the CPS Employee Domestic Violence handbook for staff
which is being disseminated to other government departments.
Although the project has now ended the legacy of the work will continue through
the mainstreaming of the work through the LGA work programme. As we pursue
the development of a Coordinated Community Response to domestic violence in
2007/08 the LGA and local authorities in particular, will be vital to its success.
In last year’s report, we identified that there was a pressing need to develop a
Men’s Agenda to engage with men in a coherent and co-ordinated way not just
as victims or perpetrators of domestic violence, but as a powerful lobby to
challenge the culture and behaviour of other men that colludes with this
destructive behaviour. In this past year we have merged the two men’s phone
lines: RESPECT for male perpetrators and Men’s Advice Line and Enquiries for
those men who find themselves in abusive relationships.
6
This collaboration has also joined with the Men’s Health Forum, to consider the
formation of a coalition of organisations who deal with men’s health and their
behaviours in order to lend a powerful male voice to tackling domestic violence.
The Centre for Public Innovation was funded by the Home Office to host two
seminars on changing men’s behaviour in 2006/07. This is on going work and
will work toward the development of the national men’s coalition in the coming
year.
During 2006/07 the Forced Marriage Unit (FMU) published the results of the
national consultation held in 2005 on whether the Government should make
forced marriage a criminal offence. As a result, it was decided that specific
legislation would not be introduced at this time.
A private peer’s bill: the Forced Marriage (Civil Protection) Bill, has now been
introduced by Lord Lester. The Government plans to work with Lord Lester and
other backers of the Bill on the proposals as the Bill goes through its Committee
stage in the Lords.
Working with organisations within the domestic violence and sexual violence
sector, the government aims to establish service and occupational standards for
both sectors which would create a consistency of service to victims and
perpetrators. To this end we are working to develop national occupational
standards for the voluntary sectors dealing with sexual and domestic violence.
Draft service standards have been prepared by Women’s Aid for both sectors
and are being circulated as part of a consultation exercise. In addition draft
occupational standards for IDVAs and are being consulted on and will be
developed further in 2007/08. This will be co-ordinated with the work on the
7
Victims of Violence and Abuse Prevention Programme (VVAPP) work to create a
co-ordinated package of measures to ensure the best possible responses to
domestic and sexual violence are made available.
HMCS has produced a DVD about the family court process: “You Don’t Have
to Live in Fear” which aims to minimise the concerns that victims may have
when making an application for a civil injunction. HMCS has also repeated a
survey of special facilities available in the family courts and has worked to
increase awareness about what to do when there are concerns about
intimidation while at court.
8
The Programme jointly managed by the Home Office, the CPS and Her
Majesty’s Courts Service was short-listed for The Joined-Up Government Award
in the Whitehall & Westminster World Civil Service Awards 2006.
During 2006/7 £3 million was used to seed fund IDVAs in the 64 SDVC areas
and Independent Sexual Violence Advisors (ISVAs) were developed in Sexual
Assault Referral Centres (SARCs) and specialist sexual violence voluntary
sector organisations. Accredited training was also developed and provided for
both roles.
EMBARGOED: The Home Office funded the initial stages of the programme.
The Department of Constitutional Affairs has now secured £3 million per annum
from 2007/2008 towards the local funding of IDVA posts in all the court areas.
At the beginning of March 2007, the Home Secretary announced £1.85 million
to develop Multi-agency Risk Assessment Conferences (MARACs).
MARACs are a recent development in services offered to victims of domestic
violence which focus on high risk victims of domestic violence as indicated
through the use of risk assessment checklists. By sharing information, agencies
get a better picture of victims’ situations and so develop responses that are
tailored to the needs and goals of individual victims and their children.
In Cardiff where the MARAC has been evaluated by Cardiff University, the level
of reported repeat victimisation has dropped from 32% to below 10% and in
2006/07 the Home Office funded the development of a training package for
MARACs based on the evaluated Cardiff model. The training is being rolled out
across the SDVC areas. In the coming year, MARACs will be rolled out to an
agreed national standard in a 100 areas by the end of April 2008.
9
All probation service areas now run a perpetrator programme accredited by the
Correction Services Accreditation Panel (CSAP) for delivery in the community.
During the beginning of 2006/07, all areas received programme sign-off by
satisfying CSAP’s quality standards and for the first time, targets were set by
the National Offender Management Service (NOMS) for programme
completions. Women Safety Workers (WSWs) play an essential role in the
programmes and in support of this role, NOMS has made available additional
funds and run four national training events for WSWs.
Other research planned includes: evaluating the Domestic Violence, Crime and
Victims Act 2004; evaluating the evaluating the Police/Family Protocol for family
court practitioners to approach the police for information in relation to family
cases; evaluating revised forms for child contact and residence applications and
an evaluation of a pilot project which was developed for staff in 12 Mental Health
Trusts to work with patients asking about their experiences of violence and
abuse.
Legislative changes
The Domestic Violence, Crime and Victims Act 2004 introduced a number of
new powers, and amendments to existing ones, to strengthen the victim’s case
when brought to the attention of criminal justice system.
Three provisions that impact on civil remedies and criminal sanctions will be
implemented from 1 July 2007. They are:
10
did so in 2004. The Sentencing Guidelines Council published definitive
guidelines in December 2006: ‘Overarching Principles: Domestic Violence and
Breach of a Protective Order’.
Work continues within HMCS to improve the interface between the family and
criminal jurisdictions and to improving transparency and privacy in family
courts. In relation to the former, the Family-Criminal Interface Committee was
established to improve the interface between the family and criminal jurisdictions
and to identify areas that have not yet been addressed to enable all
stakeholders to respond more effectively to child protection, domestic violence
and private and public family law issues within the forensic arena.
11
INTRODUCTION
This is the second progress report on the National Plan for Domestic Violence,
which was first published in March 2005. The report outlines the continuing
progress that has been made across the work streams during the year. Although
much of this work is on going, there have been significant developments
especially in the Criminal Justice System (CJS) where the number of Specialist
Domestic Violence Courts identified has now risen to 64.
Accompanying these developments has been the expansion of the Multi Agency
Risk Assessment Conferences (MARACs) and more Independent Domestic
Advisors (IDVAs) have been trained to the national standard. This trinity of
developments is paving the way for an exponential expansion in the coming
year which will transform the face of domestic violence services at local level.
We are mindful that there is a continuing need to keep monitoring the data that
is emerging from the SDVCs and the MARACs to ensure that the programme of
work is kept on track and keeps on delivering this essential service to victims
and their children.
Similarly, work carried out through the Local Government Association (LGA) with
local partnerships and Local Authorities identified the key role Local Authorities
play to achieve the substantially revised Best Value Performance Indicator
(BVPI) 225. This needs to be understood in the light of new partnership
accountability arrangements and the emerging Local Area Agreements (LAA).
Again progress on this needs to be monitored as we are seeing domestic
violence targets being included in the roll out of LAAs.
The voluntary sector is pivotal in providing specialised and focused services for
victims and emerging work on occupational standards and the Change Up
Programme for Women’s Aid services and the sector as a whole will grow in
significance in the coming year.
Work has been undertaken by ACPO to gauge how far police forces have
undertaken the CENTREX/CPS training on investigating domestic violence and
similar work is being carried out to monitor which risk assessment processes are
being used at local level, with a view to standardising the police approach.
12
Probation continues to develop and implement their strategy, which includes
having accredited domestic abuse treatment programmes running in every part
of the country which they have now achieved. Waiting times in some areas
continues to challenge but there have been significant progress in many areas
as significant additional funding for victims safety work has been made
available.
Significant progress has been made in the past year which has led to more
focused activity to respond to domestic violence at national, regional and local
level. This has led to the objectives of the National Delivery Plan being
rationalised and re-defined to allow for greater transparency and capture more
clearly the emerging model of local delivery growing out of the Specialist
Domestic Violence Court Programme.
In 2006/07 the objectives of the National Delivery Plan for Domestic Violence
were to:
13
(b) understanding what works in reducing the prevalence of domestic
violence.
However, the Delivery Plan objectives have been revised for 2007/08 to reflect
the move towards developing a Coordinated Community Response to domestic
violence. The agreed objectives are as follows:
What was Objective 3 has now become the overarching objective and what was
Objective 7 (‘To develop the evidence base to close key knowledge gaps’) is to
become work to support these objectives.
14
DEVELOPING A COORDINATED COMMUNITY RESPONSE TO DOMESTIC
VIOLENCE
At the heart of the Delivery Plan has been the excellent work of the SDVCs,
which have been expanded further in 2006/07 totalling 64 by April 2007. IDVAs
and MARACs for victims have played crucial roles within these court systems
and have helped develop the Coordinated Community Response model to
address national domestic violence work beyond the court systems.
Also, it is recognised that some areas may not be able to set up an SDVC but
that is no reason why local areas cannot implement good practice and learning
to local service delivery, even if they do not have an SDVC.
To that end the government aims to expand its focus from SDVCs to improving
the local response to victims of domestic violence across England and Wales.
This is a continuation of a dialogue that the government began at last year’s
national conference for domestic violence co-ordinators and police. A model has
been refined and developed which has been tested with regional groups to
ensure that it has captured all the best practice.
It goes on to identify the tiers of risk and illustrates the need for a co-ordinated
interplay between local agencies both local and statutory, through risk
assessment and the MARAC process. The model has been informed by the
sector’s practitioners and policy makers and has borrowed heavily from the
strategic work of Tower Hamlets in London.
Ultimately it recognises and makes explicit that no one agency can deal
effectively and safely with the effects of domestic violence it requires intensely
close working between agencies and a collaboration which, although not always
comfortable, can have a profound effect on the lives and safety of families.
15
OBJECTIVE 1: Increase the early identification of, and intervention with, victims
of domestic violence earlier by utilising all points of contact with
key front line professionals
Rationale
• Victims are often likely to be in contact with statutory health and social welfare
services such as social services, general practitioners, accident and emergency
departments, midwifery services, health visitors etc before they decide to report
to the police.
• Training practitioners to screen for domestic violence and to access referral
routes and care pathways is essential for early identification and intervention.
In 2006/07, the National Domestic Abuse Co-ordinator continued taking a strategic lead
on domestic violence across the National Health Service. The Co-ordinator also
continued to work with British Forces overseas supporting the development of good
practice, establishing strategies, guidelines and on-going training.
The pilot project at Her Majesty’s Prison Foston Hall to provide female prisoners and
staff information on domestic violence recommenced January 2007. The project aimed
to identify the needs of prisoners within the new young offenders unit.
In 2006, the Department of Health (DH) collected data on Training the Trainer sessions
provided in 2005 to gauge extent of training of health professionals in local areas. An
analysis of this data is planned.
The joint Department of Health (DH), National Institute for Mental Health and Home
Office policy document and the Victims of Violence and Abuse Prevention (VVAPP)
Programme guide: ‘Tackling the health and mental health effects of domestic and
sexual violence and abuse‘, was launched by Minister of State for Health Caroline Flint
in June 2006.
Other publications produced include: ‘Guidelines for developing Sexual Assault Referral
Centres (SARCs) nationally’ (2005) and ‘The needs and effective treatment of young
people who sexually abuse: current evidence’ (2006). The VVAPP Programme of
research is on target to report by April 2007 with guidelines on identifying and
responding to the needs of children, adolescents and adults affected by domestic
abuse, and perpetrator interventions are on schedule for completion by October 2007.
Health routine enquiry and raising awareness in the public health arena
Routine enquiring of all pregnant women, when taking a social history has now been
rolled out across midwifery services in England.
16
In June and July 2006 regional strategic breakfasts, coterminous with Government
Offices were run in conjunction with the Home Office Domestic Violence Team as part
of the Tackling Violent Crime Programme (TVCP) with the aim of strengthening local
partnerships. An evaluation of the breakfasts was conducted and the report sent to
delegates with contact information for networking to share best practice.
DH has funded two Female Genital Mutilation initiatives in 2006 namely a prevalence
study which will provide an estimate of the incidence in England and the production of a
DVD for health professionals.
In 2006/07, DH started work with the Foreign and Commonwealth Office to develop
guidelines on forced marriage for health professionals.
An expert group continues to drive the Electronic Patient Records (EPR) work forward,
a template has been established with appropriate codes embedded. The expert group
continues to take forward the EPR ‘Do Once and Share’ project.
Significant data has already emerged which health has been able to share with
engaged crime reduction partners.
Children may suffer both directly and indirectly if they live in households where there is
domestic violence. This can have an impact in a number of ways. Children living in
families where they are exposed to domestic violence have been shown to be at risk of
behavioural, emotional, physical and cognitive functioning, attitudes, and long-term
developmental problems. Further, they have an increased risk of becoming victims of
violence themselves. Children in violent households are three to nine times more likely
to be injured and abused, either directly or while trying to protect their parent. Both the
physical assaults and psychological abuse suffered by adult victims who experience
domestic violence can have a negative impact on their ability to look after their children.
17
An effective strategic framework to tackle the complex issues associated with children
affected by domestic violence needs to include specific elements focused on identifying
children at risk, putting in place appropriate support services; and ensuring inter-
agency working to safeguard and promote the welfare of children.
Such experiences may impair children's emotional and intellectual development and
hamper their life chances if these issues are not addressed early. It has therefore been
important to ensure that domestic violence issues are adequately reflected in the ‘Every
Child Matters: Change for Children’ programme, and especially in safeguarding
guidance. Further work in this past year has been to:
• ensure that training materials published by the National Society for the
Prevention of Cruelty to Children on behalf of the Department for Education and
Skills reflects domestic violence issues;
• continue to provide grant funding to Women’s Aid to support the national 24 hour
free phone domestic violence helpline and also, though the Children Young
People and Families grant scheme, to support the Daybreak Family Group
Conferences project;
18
Action for 2007/08
Domestic Violence currently costs UK business over £2.7 billion a year and affects
thousands of working men and women every day. By proactively addressing the issue,
19
organisations can both reduce the costs to their business, and, most importantly, help
prevent domestic violence in society at large.
The Corporate Alliance Against Domestic Violence (CAADV) is a group of progressive
companies and organisations working individually and collectively to address the
impact of domestic violence in the workplace.
There are around 160 members, representing over 2 million employees. The Executive
Board includes The Bodyshop International, KPMG, The NHS Employers organisation,
& AOL.
There is a website where employees can access information about domestic violence
and employers can access online resources, such as a workplace policy template,
strategic communications toolkit, case studies, and other resources.
www.corporateallianceuk.com
A training package has also been developed, and further information can be accessed
through the website.
20
OBJECTIVE 2: To build capacity within the domestic violence sector to
provide effective advice and support to victims of
domestic violence
Rationale
• Evidence indicates that support can services can vary in their effectiveness
across the country.
• The development of accredited training for IDVAs has enabled the
development of a consistent, independent, professional service for victims at
the point of crisis which can also perform institutional advocacy to ensure
that all agencies are able to provide the most effective service possible to
victims. But this is only one role within the domestic violence sector.
• An agreed set of standards across the spectrum of occupations and services
within the domestic violence sector can create a consistency of service to
victims of domestic violence.
This year there has been a concerted effort to ensure that domestic violence is
considered as part of local plans and in addition to the guidance issued in 2005,
further guidance was issued to provide targets for domestic violence through the
Local Area Agreements.
The 9 government office domestic violence lead officials (and officials from the
Welsh Assembly Government) have continued to provide co-ordinated action
and guidance to local partnerships and have been instrumental in promoting
and developing government policy through the regions and within local
partnerships.
This has been most evident in the roll out of the SDVC Programme (see
Objective 5) the TVCP and in the development of the emerging Co-ordinated
Community Response which will be promoted further this year.
The regional leads have proved an invaluable resource not only in promoting
government policy but to feed back local intelligence which has tempered policy
approaches to meet local conditions.
The LGA Domestic Violence Project has now come to an end, but will leave a
lasting legacy of the crucial role of local government in tackling domestic
violence. The programme has yielded up important information about the role of
local authorities in tackling domestic violence and the project acted as a
consultancy with those local authorities who were part of the specialist domestic
21
violence programme. In particular the project published ‘The vision for services
and young people affected by domestic violence’ in partnership with CAFCASS
and Women’s Aid; hosted a conference on Homicide Reviews’ as well as a
training programme for elected members of local authorities. Although the
project has now ended the legacy of the work will continue through the
mainstreaming of the work through the LGA work programme. As we pursue the
development of a Coordinated Community Response to domestic violence in
2007/08 the LGA and local authorities in particular, will be vital to its success.
Men’s Agenda
In last year’s report, we identified that there was a pressing need to engage
with men in a coherent and co-ordinated way not just as victims or
perpetrators of domestic violence, but as a powerful lobby to challenge the
culture and behaviour of other men that colludes with this destructive
behaviour. In this past year we have merged the two men’s phone lines:
RESPECT for male perpetrators and Men’s Advice Line and Enquiries (MALE)
for those men who find themselves in abusive relationships. This collaboration
has also joined with the Men’s Health Forum, to consider the formation of a
coalition of organisations who deal with men’s health and men’s behaviours in
order to lend a powerful male voice to tackling domestic violence.
The Centre for Public Innovation was funded by the Home Office to host two
seminars on changing men’s behaviour in 2006/07. This is on going work and
will work toward the development of the national men’s coalition in the coming
year.
In the last year, the FMU published the results of the national consultation held
in 2005 on whether the Government should make forced marriage a criminal
offence. The Government fully considered all the arguments before deciding
whether or not to legislate, and in June 2006 Baroness Scotland announced that
specific legislation would not be introduced at this time.
A private peer’s bill (Forced Marriage (Civil Protection) Bill) has been introduced
by Lord Lester which proposes a civil remedy which would allow victims to seek
an injunction where there is evidence that they are at risk of being forced or
deceived into marriage.
22
The government fully supports the aims of the Bill, and wish to see provisions
along these lines placed in statute as soon as possible. The government plans
to work with Lord Lester and other backers of the Bill on the proposals as the Bill
goes through its Committee stage in the Lords.
Since the last report, the FMU is now pursuing the recommendations of the
consultation through the recently-agreed two-year strategy. This includes work
in three areas: continuing our extensive programme of outreach work,
strengthening work with statutory agencies to implement forced marriage
guidelines, including increasing training to professionals, and making better use
of existing legislation and civil remedies. This work has included:
In 2007/2008, the FMU will continue to develop the way that it handles cases of
forced marriage and seek to contribute to UK-wide approaches to the issue.
This will include developing closer relationships with partners in the UK
(including statutory agencies, Parliament and the voluntary sector) and partners
overseas (including UK Embassies and High Commissions, foreign
governments, NGOs and the EU); seeking to mainstream forced marriage into
wider measures to combat domestic violence; and continuing our substantial
programme of outreach activity across the country.
23
The FMU’s two-year strategy will form the basis for this work. This will include:
While we are waiting for the research results from the commissioned reports into
the needs of BME communities, the government has funded IMKAAN to look into
the access to refuge provision for South Asian women. The project will be
examining the occupancy and ‘move on’ rates of women who are using refuges
and other housing options across the country.
As with last year, local partnerships are being encouraged to mainstream the
commissioning of Domestic and sexual violence services into the routine
business of crime reduction. Such commissioning requires readily available
service standards which in turn need occupational standards for staff employed
in the delivery agencies. As this begins to take shape, it is essential that the
domestic violence workforce in both the statutory and non-statutory sectors are
trained to appropriate levels of competence and that services are operating to
agreed national standards.
24
• Women’s Aid Federation of England (WAFE) has produced a draft set of
standards for the voluntary domestic and sexual violence sectors as part of
last year’s Change Up Programme. The standards are currently out for
consultation and the Home Office is funding a post in WAFE to take this
forward in the coming year;
These two pieces of work will be complemented by the VVAP Programme which
seeks to establish standards for therapeutic interventions.
The continuing need to provide 24 hour access to support and information for all
victims of domestic violence remains the central plank of the National Delivery
Plan’s objective of providing nationwide support for victims. Under this objective,
the government funds and part funds, a matrix of national help lines which focus
on particular sections of the community that need support and information.
The government part funds this line along with the Association of London
Authorities and Comic Relief and the host agencies also have a challenging
fund raising strategy to ensure that the line remains fully operational. This past
year has been a challenge for funders and the agencies as new performance
standards were agreed and implemented. This required a change in working
patterns and processes to ensure that the service was using its resources to
best meet the needs of the callers. The agencies have worked hard to
reschedule rotas and make efficiency gains including introducing a risk
assessment protocol for all calls.
The help line has also been instrumental in the development of materials for the
ENOUGH campaign which was rolled out regionally to encourage 3rd party
callers to seek help for their friends, neighbours and work colleagues.
There are further challenges ahead in 2007/08 which will continue to test the
service and its operation but there is great commitment from funders and
Women’s Aid and Refuge alike to make this the best possible service for victims.
25
The issue of men as victims of domestic violence is complicated as although
there is no doubt that men are sometimes the victims, the responses required
and service needs of this particular client group is unclear. The need for specific
research has been identified but there were delays in commissioning this piece
of wok in 2006/07. However, it remains a priority and it will be part of the work
programme for next. Alongside of this, we funded the Devon Male helpline to
offer a support and information service for male victims. It was becoming
apparent that as this helpline was being promoted by a number of agencies and
partnerships around the country many of the calls were coming from outside
Devon.
It was decided that the service should be made available nationally and be
housed with a complementary national service. In November 2006 the line was
transferred to the management of RESPECT and renamed the Men’s Advice
Line and Enquiries whilst still keeping its external brand and separate number.
Like the issue of men as victims it is known that domestic violence occurs in the
LGBT communities. However what isn’t known is the extent of the problem and
what the service needs might be. Preliminary work has been undertaken by
Bristol and Sunderland universities into same sex domestic violence and further
work is due to be commissioned in the coming year. Broken Rainbow has been
funded by the government to provide a helpline service to the LGBT community
as well as contributing expertise to other broader training packages.
Whatever the outcome of these deliberations over the structure of the service,
the government remains committed to providing a service to the LGBT
community.
As with the other lines we have recognised the need for perpetrators to have
access to appropriate self help services and information. RESPECT has
provided this service and is a direct complement to the service standards that
they are working on for voluntary sector perpetrator programmes.
26
Last year work began on developing national standards for perpetrator
programmes outside of the criminal justice system which was led by RESPECT
and joint funded by the Home Office and the Lankelly Trust. As awareness of
domestic violence in growing, more perpetrators are expected to come forward
to seek help, as the consequences of their actions become apparent to them
and others. Therefore, services set up to help them must ensure that the
programmes on offer are effective and consider the safety of the victims.
There has been good progress this year and pilot areas are currently being
considered in order to trial the draft standards.
The dynamics of domestic violence mean that accommodation and support can
play a vital role in the resolution of interpersonal violence and conflict. It is the
foundation to ensuring that adult and child victims are afforded safety and
security.
Communities and Local Government (CLG) and the LGA have produced joint
guidance for Local Authorities on setting up Sanctuary Schemes.
CLG are currently surveying local authorities to look at the uptake and
proliferation of Sanctuary Schemes across England. The results should be
available during the summer.
27
• Produce guidance for Local Authorities on homelessness prevention and
accommodation options for DV victims (CLG).
• This year CLG will be providing £150,000 to support UKRefugesonline
(UKROL) a UK wide database of domestic violence services that underpins
the delivery of the national 24 hour free phone domestic violence helpline,
delivered in partnership by WAFE and Refuge.
Supporting People
Each top-tier authority has a five-year SP strategy in place, and it is that which
should be used by authorities to decide where support is needed in their area.
In 2005/06, over £59 million of Supporting People funding was used to provide
housing related support for victims of domestic violence. Exact figures of
Supporting People spending on domestic violence services in 2006/07, will not
be available until the summer.
In October 2005, HMICA published its report ‘Domestic Violence, Safety and
Family Proceedings'1. The report followed a thematic review, carried out in nine
courts, of how domestic violence was dealt with in the family courts and by
CAFCASS.
1
http://www.hmica.gov.uk/files/HMICA_Domestic_violence_linked1.pdf
28
HMCS has also repeated a survey of special facilities available in the family
courts and have redistributed a poster for courts to display who to contact
should anyone be concerned about intimidation while they are at court.
A training and awareness programme has also been devised for court staff and
will tie in with training to prepare for the implementation in July 2007 of sections,
1, 4 and 12 of the Domestic Violence, Crime and Victims Act 2004.
• The distribution of the DVD and revised domestic violence guide and
associated work to monitor its impact.
• A recognition survey is planned with practitioners in relation to the court
posters..
• Training and awareness raising will be carried out for court staff on
domestic violence generally and on the provisions of the DVCV Act 2004.
• CAFCASS and HMCS will together to produce further information for
service users (either leaflet or poster format) which will build on the DVD
for injunction applications.
• CAFCASS will continue the provision of in-depth domestic violence
training to all staff.
• CAFCASS will implement the new Safeguarding Framework for the
agency, incorporating the domestic violence standards and toolkit (April
2007).
• CAFCASS and the Association of Chief Police Officers (ACPO) to agree
a joint protocol for information sharing in private law cases.
29
OBJECTIVE 4: To increase reporting and arrests rates for domestic violence
Rationale
The initial response of the police to a report of domestic violence is critical and is
likely to have a significant impact on the confidence and subsequent continued
engagement with the CJS of the victim and their family.
30
During the second campaign there was a higher tendency, than in the first,
which ran in February and March 2006, for offenders to be charged rather than
cautioned (the latter being rarely appropriate in domestic violence cases), and a
subsequent increase in the rate of sanction detections. There was also a lower
rate of no further action, and in bail of over 4 weeks.
Although these results were positive, it is clear that there is still plenty of room
for improvement.
The Home Office is funding an independent review of this trial. The findings thus
far include an increase in recording and detection and an apparent reduction in
violent crime in the pilot areas.
Draft guidance for police forces detailing best practice on body worn video
equipment will be published in due course.
Enough campaign
The Enough campaign which focuses on third party witnesses who know or who
are aware of domestic violence in families was again rolled out to the new
SDVCs during March and April 2007.
In relation to the previous campaign which ran from February to April 2006,
research was carried before and after the campaign ran, including
Plymouth/Devon, Leeds and the Midlands and there were the following findings:
31
OBJECTIVE 5: Increase the rate at which sanction detections are converted
into offences brought to justice, particularly in high incidence areas and/or
communities as well as in areas with high attrition rates.
Rationale
The SDVC Programme has been the centrepiece of the National Delivery Plan
for Domestic Violence and contains 11 core components which have contributed
to the positive outcomes that have been demonstrated.
After two selection rounds (2005/6 and 2006/7), the next steps for the national
Programme are to:
Co-ordinated local activities, which include the CJS, can have a major impact on
achieving protection for victims and bringing perpetrators to justice. Increased
charged cases and successful prosecutions of domestic violence cases were
recorded and monitored by CPS.
The Programme jointly managed by the Home Office, the CPS and Her
Majesty’s Courts Service was short-listed for The Joined-Up Government Award
in the Whitehall & Westminster World Civil Service Awards 2006.
Action in 2007/8
32
CPS training for prosecutors and the whole of the service
• by January 2007, over 2,400 CPS staff had been trained in domestic
violence; of which 1,784 were prosecutors and caseworkers;
• plans were in place to ensure all SDVCs had trained prosecutors to work in
the new SDVCs by April 2007;
• all CPS Domestic Violence Coordinators (DVCs) had been trained as
trainers by January 2006 to deliver the training programme on an ongoing
basis; a second tranche of training was carried out for DVCs in autumn
2006 to ensure every Area had a trained DV trainer;
• the manual was developed into an e-learning format – for use by staff
awaiting face-to-face training;
• in early 2007 a pilot is planned with the Bar for their use of the e-learning
training programme.
Good Practice Guidance developed from the CPS Domestic Violence Project and
two SDVC pilots in Croydon and Caerphilly, was disseminated to all CPS Areas in
2005-6 to inform 2006/07 Business Plans. The Guidance outlined ten key points
of action to improve the number of offenders being brought to justice.
The Code of Practice for Victims of Crime and the Prosecutors’ Pledge
The Code of Practice for Victims of Crime2 sets out the standards of service that
victims can expect from the criminal justice agencies. The Code was launched
in April 2006. To complement the Code, the Attorney General published a
Prosecutors' Pledge in October 2005.
Broader than the Code, the Pledge addresses the impact of charging and the
acceptance of pleas on victims of crime. The commitments contained in the
Pledge, alongside the Code of Practice for Victims of Crime, provide clear
2
http://www.homeoffice.gov.uk/documents/victims-code-of-practice
33
guidelines that should ensure that victims and witnesses are kept informed of
the progress in their case. There is also an interactive website that enables
victims to do a ‘walk through’ of their case3.
CPS Snapshot
Victim care
• Witness Care Units (WCUs) deal with support for victims and witnesses.
3
www.cjson-line.gov.uk/victim/walkthrough/index.html
4
April 2006-March 2006 average of 59.7% successful outcomes for DV cases; by quarter 2 in
2006-7 (Sept - Dec 2006) 65.4% successful outcomes.
34
• Specific procedures have been set up with No Witness No Justice (the
National Victim and Witness Care Programme) to deal with domestic
violence cases, ensuring that domestic violence specialists are the primary
point of contact for domestic violence victims.
• Guidance on Direct Communication with victims is available for all
prosecutors.
• See Objective X for the Code of Practice for Victims and the Prosecutors
Pledge.
• The CPS addressed work to link domestic violence with other sections of
violence against women (VAW) i.e. forced marriage, honour-based
violence, rape; FGM; children; prostitution; elder abuse and trafficking, etc.
• In March 2006, the CPS ran a ‘Violence against Women’ poster campaign,
highlighting the range of offences that could be prosecuted across this
theme. The publicity also indicated support services for victims.
• The CPS was awarded top marks across government for their work on
VAW by the End Violence against Women Campaign5 in November 2006.
• In December 2006 the CPS launched its Single Equality Scheme that
included plans for a VAW strategy and Action Plans by December 2007.
• Violence against Women has been prioritised with the CPS national six
strategic themes for 2007/8.
5
Women’s National Commission and Amnesty UK coordinate the End Violence against Women
campaign.
35
• All other prosecutors and caseworkers will be trained by 2008.
• Domestic violence training materials will continue to be updated annually
and included as part of e-learning; a new format based on cases will be
introduced post 2008.
• Further development of Training for the Bar will be undertaken
• A pilot to investigate the prosecution of forced marriage and honour-based
violence will be undertaken in 2007. Plans to develop guidance and
training for specialist prosecutors dealing with these cases will be
assessed.
• Develop work with ACPO on the civil and criminal interface.
• Review the implementation of good practice annually.
• Work with Home Office and DCA/HMCS in the further development of
IDVAs, MARACs and SDVC within the Coordinated Community Response
model.
• Domestic violence equality and diversity issues will be reviewed in 2007.
• Develop a ‘Violence against Women’ strategy and action plans by
December 2007.
• Complete training for HR advisors on the revised Employee Domestic
Violence Policy and ensure it is monitored.
36
OBJECTIVE 6: To support victims through the CJS and manage
perpetrators to reduce risk
Rationale
IDVAs are trained specialists whose goal is the safety of their victims. Their
focus is on providing a service to victims at medium to high risk of harm to
address their safety needs and help manage the risks that they face.
During 2006/7 £3 million was used to seed fund IDVAs in the 64 SDVC areas
and Independent Sexual Violence Advisors (ISVAs) were developed in Sexual
Assault Referral Centres (SARCs) and specialist sexual violence voluntary
sector organisations.
Accredited training for IDVAs and ISVAs has been developed by CAADA6. In
2006/07 the Government funded training for 77 IDVAs and 38 ISVAs.
• Embargoed: The Home Office funded the initial stages of the programme.
DCA has now secured £3m per annum from 2007/2008 towards the local
funding of IDVA posts in all the SDVC areas and in further selected areas.
6
Coordinated Action Against Domestic Abuse, www.caada.org.uk
37
• The Home Office are continuing to fund the 38 ISVAs in 2007/08 and both
the ISVAs and the IDVAs are being subject to a process evaluation during
2007/08.
Members of the MARAC construct jointly and implement a risk management plan
that provides professional support to all those at risk and that reduces the risk of
harm.
In Cardiff, where the MARAC has been evaluated, the level of reported repeat
victimisation has dropped from 32% in 2004 to an average of under 10% in the
period from April 2006 to December 2006.
In 2006/07 the Home Office funded Co-ordinated Action Against Domestic Abuse
(CAADA) to develop a training package for MARACs based on the evaluated
Cardiff model and the training continued to be rolled out to all the SDVC areas.
In February, CAADA facilitated its first Training for Trainers course for MARAC
training.
In March 2007, the Home Secretary announced £1.85 million to continue to roll
out MARACs to the SDVCs areas and to selected further areas. This support
will comprise:
• Seed funding to support the MARAC (this would include the resources
required to administer the MARAC7 and also the purchase or
development of a case management resource to enable those cases
heard at the MARAC to be documented and tracked.
• Continue to fund the MARAC training provided by CAADA8.
7
Either through utilising existing posts or the recruitment of a dedicated MARAC
administrator
8
Coordinated Action Against Domestic Abuse www.caada.org.uk
38
Accredited Domestic Abuse Perpetrator Programmes within the Criminal
Justice System
Probation Service
By the end of 2005/06, all probation service areas were running one of two
domestic abuse treatment programmes accredited by the independent
Correctional Services Accreditation Panel (CSAP) for delivery in the community.
The Integrated Domestic Abuse Programme (IDAP) and the Community
Domestic Violence Programme (CDVP) are part of the coordinated community
response to domestic abuse. They promote and require cooperation and inter-
agency working with both statutory agencies and voluntary organisations. IDAP
and CDVP are more akin to a system which focuses on the planned intervention
in relation to the sentenced perpetrator, and promotes the safety of their victims
and current female partners.
During the beginning of 2006/07 all probation areas received programme sign-
off by satisfying the quality assurance process which enables programme
completions to the counted towards targets. For the first time, targets were set
by the National Offender Management Service (NOMS) for programme
completions. For 2006/07, the national target was set at 1,200 completions and
probation areas are on course to meet this. Areas’ implementation plans are
being reviewed to ensure the programmes are being funded correctly. Women
Safety Workers (WSWs) play an essential role in the programmes and in
support of this role, NOMS has made available additional funds and run four
national training events for WSWs.
Prison Service
CSAP has accredited this programme, meaning that they are of the view that it
is likely to reduce future incidents of domestic abuse. The HRP is suitable for
those prisoners who have convictions for violence against a partner or ex-
partner as well as those that self-report such violence and are willing to address
their abusive behaviour within their relationships. The HRP is the same
39
programme as the Community Domestic Violence Programme (CDVP) provided
by the Probation Service.
Since being piloted and subsequently gaining accreditation, the Prison Service
has been gradually building up delivery of the HRP. Fifty-eight perpetrators of
domestic violence completed this programme in four prisons in 2005. During
2006/2007 an additional prison began to offer the programme, and there was a
consequent increase to sixty-six target completions.
To support the NPS Policy and Strategy, guidance was drawn up during 2006/07
which covered in more detail the principles and practice aims of the Policy and
Strategy. The guidance was issued on the NPS intranet in sections, focussing
on such topics as working with victims; the nature and context of domestic
abuse; the Specialist Domestic Violence Court programme; and the assessment
and management of risk of harm and the use of interventions. Work is
underway to develop a draft model policy for Probation Boards to consider
adopting in respect of staff who may be victims or perpetrators of domestic
abuse.
• Monitor the local implementation of the strategy and use of the supporting
guidance. Issue additional guidance and update existing guidance as
necessary.
• Work towards the development of a NOMS domestic abuse strategy
covering the work of both the probation and prison services.
40
OBJECTIVE 7: Develop the evidence base to close key knowledge gaps
Rationale
• Forty per cent of women and 29 per cent of men who had
experienced intimate violence since the age of 16 had
experienced intimate violence by more than one offender type.
9
http://www.homeoffice.gov.uk/rds/pdfs07/hosb0207.pdf
41
• Less serious sexual assault was most likely to be committed by
a stranger. Sixty-three per cent of women and 51 per cent of
men who had experienced less serious sexual assault reported
the offender had been a stranger.
10
http://www.bristol.ac.uk/sps/downloads/FPCW/perpetratorsreport.pdf
42
• Health service responses should not refer perpetrators to
counselling or related approaches which may re-enforce the
‘poor me’ syndrome. Instead GPs, who were often contacted by
the perpetrators for help and advice in relation to their abusive
behaviour, and other health service staff, should direct services
that are critical of, and aim to change, violent men’s behaviour.
• Agencies which come into contact need the skills to safely ask
about violent and abusive behaviour.
A process evaluation to assess the role of IDVAs and ISVAs and their
role and remit within the Co-ordinated Community Response is
planned to be commissioned in 2007/08.
43
Revised forms for child contact and residence applications were introduced in
2005 to give applicants and respondents an early opportunity to raise issues of
‘harm’ for the court to consider.
The evaluation of the impact of the ‘Gateway form’ will be submitted in March
2007.
Researchers have been evaluating and comparing how domestic violence cases
are handled at two Magistrates’ Court venues (Croydon and South Tyneside). A
comparison will be made on how a non-specialist court and an 'innovative' court
deal with domestic violence prior to and post implementation of the DVCV Act
2004.
Since the implementation of some provisions of the DVCV Act will not take place
until July 2007, the evaluation will be extended to facilitate the post-
implementation part of the study in November 2007.
The Police/Family Protocol sets out the procedure for family court practitioners
to approach the police, in a standardised and timely manner, for information in
relation to family cases. ACPO notified Force Champions to implement the
protocol across all police areas from April 2006 and a Business Information
letter was circulated to the courts and judiciary.
The pilot evaluation report and revised versions of the protocol have been
posted on the DCA website and linked from the HMCS site at Annex X.
44
LEGISLATIVE AND PROCEDURAL CHANGES
The Domestic Violence, Crime and Victims (DVCV) Act 200411 introduced a
number of new powers, and amendments to existing ones, to strengthen the
victim’s case when brought to the attention of criminal justice system.
Three provisions that impact on civil remedies and criminal sanctions will be
implemented from 1 July 2007. They are:
The following measures within the DVCV Act 2004 which put all victims at the
heart of the criminal justice system by:
45
criminal responsibility for members of a household where they know that
a child or vulnerable adult is at significant risk of serious harm;
• bring in the Law Commission recommendation for a two-stage court trial
to ensure that high volume crimes like fraud and internet child
pornography can be punished in full.
The Children and Adoption Act 2006 completed its Parliamentary passage and
received Royal Assent on 21 June 2006. Section 7 of the Act requires Children
and Family Court Advisory Support Services (CAFCASS) officers, or Welsh
family proceedings officers, to carry out risk assessments in private law
proceedings under the Children Act 1989 (residence/contact/prohibited steps
and specific issues orders) where they consider that there is cause to suspect
that a child is at risk of harm. They are then required to inform the court of their
findings in respect of the risk of the child-suffering harm.
Disclosure
The Children Act 2004 changed the rules for disclosure of information in family
proceedings cases involving children. New rules were commenced on 31st
October 2005, detailing the new arrangements13.
13
For full details see guidance published on the Courts Service website
http://www.hmcourts-service.gov.uk/docs/ex710_1105.pdf which came into force on 31
October 2005.
46
• ensure reporting restrictions provide for anonymity of those involved in
family proceedings (adults and children), while allowing for restrictions to
be increased or relaxed, as the case requires;
• introduce a new criminal offence for breaches of reporting restrictions;
• make adoption proceedings a special case, so that there is transparency
in the process up until the placement order is made, but beyond that
proceedings remain private.
Sentencing guidelines
14
http://www.sentencing-guidelines.gov.uk/docs/domestic_violence.pdf
15
http://www.sentencing-guidelines.gov.uk/docs/breach_of_protective_order.pdf
47
• identify legislative, structural, procedural and other changes that may be
required to improve the interface between the family and criminal
jurisdictions;
• recommend and prioritise necessary changes to be acted on by the
Government and the relevant stakeholders;
• identify and promulgate good practice on a consistent national basis for
relevant stakeholders, e.g. on joint directions where there are concurrent
criminal and family proceedings;
• circulate guidance for legal practitioners to improve awareness of the family-
criminal interface in both jurisdictions.
48
Annex X: ACPO Police/Family Disclosure Protocol
The Police/Family Protocol sets out the procedure for family court practitioners to
approach the police, in a standardised and timely manner, for information in relation
to family cases. ACPO notified Force Champions to implement the protocol across
all police areas from April 2006 and a Business Information letter was circulated to
the courts and judiciary.
The pilot evaluation report and revised versions of the protocol have been posted
on the DCA website and linked from the HMCS site at the addresses noted below:
Explanatory Memorandum Protocol (as used in the pilots including procedure and
forms)
http://www.dca.gov.uk/family/metpol-expmem.pdf
Evaluation Report
http://www.dca.gov.uk/family/police-info-family-proceedings.pdf
http://www.hmcourts-service.gov.uk/infoabout/family_law/index.htm
Go to the section that says 'Part IV of the Family Law Act 1996' there is now a link
in the right hand box 'Further Information' called 'Domestic Violence Guidance and
Information' – this will take you to the DCA site.
49