Tackling Violence at Home
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Produced by
Department of Health, Social Services & Public Safety
Castle Buildings,
Stormont
BT4 3SQ
Tel: 028 9052 1974
Textphone: 028 9052 7668
www.dhsspsni.gov.uk
October 2005
Tackling Violence
Ref 102/05 at Home
A STRATEGY FOR ADDRESSING
DOMESTIC VIOLENCE AND ABUSE
IN NORTHERN IRELANDA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND Tackling Violence at Home Tackling Violence at Home 59.
A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
Tackling Violence
at Home
A STRATEGY FOR ADDRESSING
DOMESTIC VIOLENCE AND ABUSE
IN NORTHERN IRELAND
OCTOBER 2005
Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND Tackling Violence at Home
A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
Contents
Foreword 02
Executive Summary 04
Introduction 06
What is Domestic Violence and Abuse? 09
Patterns and Prevalence of Domestic Violence and Abuse 11
The Cost of Domestic Violence 13
The Response to Date and the Problems in Tackling Domestic Violence 15
The Government’s Vision and Commitment 18
Roles and Responsibilities 21
The Aims of the Strategy 23
Delivering on the Aims 24
Action Plans 35
Standards, Resources, Structures and Review 36
Annex 1 List of members of the Inter-Departmental Working Group
on Domestic Violence 38
Annex 2 List of members of the Regional Steering Group on Domestic
Violence and its 3 sub-groups 39
Annex 3 Equality Issues 43
Annex 4 Structures 46
Annex 5 Performance Indicators 49
Annex 6 Glossary 53
Tackling Violence at Home 01.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
Foreword
This document sends a clear message from The Government is determined to hold
Government. Domestic violence is a crime perpetrators of this insidious crime to
and is not acceptable in any circumstances. account for their abuse. The Domestic
Violence, Crime and Victims Act 2004 focuses
Domestic violence and abuse is a serious more attention on perpetrators and provides
problem. It has a devastating impact on better protection for victims, for example, by
victims and their families. Each year in giving the police greater powers of arrest.
Northern Ireland around 5 people are killed
and over 700 families have to be re-housed The Government acknowledges the excellent
as a result of violence in the home. On work that has been done over the past 30
average, every week, the police attend over years by Women’s Aid in Northern Ireland in
400 domestic incidents and deal with over raising awareness about domestic violence
100 domestic assaults on women and men, and supporting female victims. We also wish
yet we know that most domestic-related to acknowledge the inter-agency
incidents are not reported. relationships developed over the past decade
by staff in all the relevant voluntary and
The abuse affects people right across our statutory agencies at both regional and local
society - from all walks of life, from all level. This inter-agency approach has been of
cultural, social and ethnic backgrounds and enormous benefit in raising the standard of
across all age groups. The vast majority of services for victims. The commitment and
victims are women, but a significant number efforts of all those agencies is greatly
of men are also affected and abuse also appreciated and their experience and
occurs in same-sex relationships. Violence in expertise will be invaluable as we seek to
the home is particularly disturbing for implement a new strategy by building on the
children and we know from local research solid foundations they have laid.
that at least 11,000 children here are living
with domestic violence on a daily basis. These This strategy and the associated action plan
are staggering figures and the problem set out a vision for the future, with aims and
requires a strategic response. targets focusing on preventive measures and
02. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
on the provision of better protection, justice public that violence and abuse in the home is
and support services for victims and their totally unacceptable. Through our on-going
children. All the statutory and voluntary media campaigns, we will encourage the
agencies are committed to working in many silent victims to come forward and
partnership on the Regional Steering Group seek help through the freephone Helpline
and on Local Domestic Violence Partnerships and from the various agencies who provide
and that commitment is vital to successful such valuable support.
implementation of the strategy.
Working together we can achieve our
We must encourage everyone to end the common goals and we can make a real
silence on domestic violence. We must difference to the lives of victims and
educate children and the wider general their families.
David Hanson MP Shaun Woodward MP
Minister of State for Parliamentary Under Secretary of
Northern Ireland State for Northern Ireland
Jeff Rooker Angela Smith MP
Minister of State for Parliamentary Under Secretary of
Northern Ireland State for Northern Ireland
Rt Hon Peter Hain MP
Secretary of State for
Northern Ireland
Tackling Violence at Home 03.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
Executive Summary domestic violence and its consequences. It is
estimated that the direct cost of services plus
Introduction the loss of economic output in Northern
Domestic violence and abuse is a serious Ireland due to domestic violence could
problem in Northern Ireland. It occurs right amount to about £180 million each year, and
across our society and it has devastating this figure does not include the “intangible
consequences for the victims and their costs” associated with the pain and suffering
families. It accounts for one in five cases of of victims.
violent crime here. On average every year 5
people are killed as a result of domestic Purpose
violence and about 700 families have to be This document sets out a new strategy
re-housed. Every day about 12 women and 4 covering the next 5 years for tackling
men report an assault by a partner to the domestic violence and abuse in the 3 key
police, yet it is known that violent incidents areas of prevention; protection and
in the home are seriously under-reported. justice; and support. The strategy is the
product of a wide-ranging consultation and
Children are very much the silent victims of collaboration process involving all the
domestic violence. They may witness it or be relevant government departments and all the
subject to it but often their voices are not relevant statutory and voluntary agencies.
heard. Local research indicates that at least
11,000 children here are living in violent Vision
homes. Their experiences can affect their The strategy’s vision focuses on meeting the
emotional, psychological, physical and sexual needs of all victims who experience abuse
development and the abuse can have long- through the development of better, more
lasting consequences for them in childhood equitable, accessible and effective services;
and in later life. and on working towards the development of
a society in which domestic violence is
Millions of pounds are spent every year unacceptable and will not be tolerated. The
across a range of services in dealing with ultimate goal is to put in place all practicable
Domestic Violence is a crime. It is not acceptable in any circumstances.
04. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
measures towards the elimination of Structures and Implementation
domestic violence and abuse. Structures are in place at regional and local
level to ensure that the strategy will be
The strategy sets out the commitment of implemented consistently across Northern
Government and all the partner agencies to Ireland. All of the relevant agencies are
adopting a consistent and long-term committed to working in partnership to
approach to the prevention of domestic ensure there is a strategic joined-up
violence and an effective response where approach taken to tackling domestic violence.
it occurs.
An initial Action Plan, which is published
Overall Aims alongside this strategy, sets down a number
The overall aims of the strategy are: of key action proposals and target dates for
• To improve services and support for all achieving progress over the next 18 months.
victims of domestic violence Further Action Plans will be developed
• To develop and deliver a high quality, annually from 2007 onwards. The
co-ordinated multi-agency response to implementation of the strategy and the
domestic violence Action Plans will ensure a more effective
• To further increase and develop response to domestic violence across
awareness generally about domestic Northern Ireland. Performance Indicators will
violence and the measures in place to be put in place across a range of services to
help the victims measure the success of the strategy.
• To educate children and young people
and the wider general public that
domestic violence is wrong and is
unacceptable and to enable them to
make informed choices
• To hold perpetrators/abusers accountable
and provide effective interventions for
their behaviour.
Domestic Violence. Anyone can suffer – so anyone can call 0800 917 1414
Tackling Violence at Home 05.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
Introduction
This strategy aims to provide better Domestic Violence, which was brought
protection, justice and support for victims of together in August 2003 and jointly chaired
domestic violence and provide a sharper by the Department of Health, Social Services
focus on prevention by addressing the causes and Public Safety and the Northern Ireland
of domestic violence and abuse. Office. It involved representatives from a
number of relevant Government
Background Departments. The Working Group’s objective
It is 10 years since the publication of the was to create a joined-up approach to
previous policy document Tackling Domestic domestic violence, building on existing good
Violence: A Policy for Northern Ireland1. practice, and to develop a cross-cutting
This new strategy, which will be subject to strategy plotting the way forward on a
ongoing review through the development of number of fronts. A list of members of the
annual action plans, sets the scene for the Inter-Departmental Working Group is
next 5 years. It builds on the 1995 policy included at Annex 1.
document and on the subsequent
achievements of the voluntary and statutory Further development of the strategy has been
agencies involved in the former Regional taken forward by the Regional Steering
Forum on Domestic Violence and the existing Group on Domestic Violence. This Group was
local Domestic Violence Inter-Agency Fora. established in December 2004 and comprises
representatives of all the relevant statutory
The strategy is the outcome of a full public and voluntary bodies. A list of members of
consultation exercise and a collaboration the Regional Steering Group is included
process involving all the relevant statutory at Annex 2.
and voluntary agencies. The October 2003
consultation paper2 and the early framework Responses to the 2003 consultation indicated
for a strategy were developed by an clearly that more needs to be done to
Inter-Departmental Working Group on achieve an effective response to domestic
1 Tackling Domestic Violence – A Policy for Northern Ireland. The Department of Health and Social Services and the Northern Ireland Office
(1995) ISBN 1 899203 05 2
2 Tackling Violence at Home – The Government’s Proposals on Domestic Violence in Northern Ireland. The Department of Health, Social
Services and Public Safety and the Northern Ireland Office (October 2003) Ref 163/2003
06. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
violence3. A more effective system of which is published alongside the strategy,
communication and collaborative working sets out the key actions to achieve progress
between departments and agencies is across a range of services over the next
needed, to ensure that the needs of victims 18 months.
are met and that perpetrators are challenged
and held responsible for their actions. The Way Forward
The publication of this strategy is only the
Victims: throughout this strategy beginning of a process to address the serious
there are many references to problem of domestic violence and abuse. All
victims. The term is intended to be the relevant departments and agencies are
all-inclusive to cover all persons working together as partners on the
who are affected by or who are Regional Steering Group to oversee the
survivors of domestic violence and implementation of the strategy. There are
abuse. This includes children and also three dedicated sub-groups on:
young people and persons in all of Domestic Violence and the Law;
the equality categories covered by Children and Young People; and
section 75 of the Northern Ireland Information. The sub-group members are
Act 1998 - these equality categories listed at Annex 2. The Regional Steering
are set out at Annex 3. Group and its sub-groups will be
responsible for ensuring that the strategy
Outline of the Strategy and Action Plan continues to evolve and that further Action
The strategy identifies what is required to Plans are drawn up annually, starting in
tackle domestic violence and abuse 2007, to address new problems and
effectively. It describes the overall strategic priorities, including the need for additional
approach which will be adopted to achieve resources. At a local level implementation of
the aims. Action Plans will be developed the strategy will be the responsibility of the
annually and these will set out specific action Local Domestic Violence Partnerships which
points to translate the strategy’s principles will bring together the existing local domestic
and aims into practice. The initial Action Plan, violence fora and community safety
3 Tackling Violence at Home – Summary of Responses to the Consultation. The Department of Health, Social Services and Public Safety and
the Northern Ireland Office (March 2004) Ref 371/2003
Tackling Violence at Home 07.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
partnership personnel to further the related violence and abuse as one of the key
strategy’s aims. action areas to be tackled by Government
departments and their agencies. It will also
Success will only be achieved if all of the help to deliver on some of the priority
partners involved at regional and local levels outcomes set out in the over-arching Strategy
commit to taking positive action to address for Children and Young People5, in particular
domestic violence through the those which relate to the safety of children and
implementation of the strategy. young people and support for parents/carers
and families. It will also complement other
Note about terminology: relevant strategies which have been issued or
throughout the strategy references are being developed, such as:
are made to • The Supporting People Strategy
domestic violence; 2005-2009
domestic violence and abuse; and • The new Regional Strategy for Health
domestic abuse and Well-Being - due for publication
these terms are deliberately used late 2005
inter-changeably to highlight the • The Strategic Framework for Children,
fact that the problem is not Young People and Families - consultation
restricted to physical violence but due early 2006
involves also psychological, verbal, • The Sexual Violence Strategy - consultation
sexual, financial and emotional due early 2006
abuse. See section on • Strategic Action Plan on Sexual Orientation
What is Domestic Violence – consultation due Autumn 2005
and Abuse? • The Family and Parenting Strategy -
consultation due mid - 2006
Other Strategies • The New Strategic Direction for Drugs and
This Strategy will complement the proposed Alcohol in Northern Ireland - consultation
Gender Equality Framework Strategy4 due early 2006
“Gender Matters” which highlights gender-
4 The Office of the First Minister and Deputy First Minister published a proposed Gender Equality Framework Strategy “Gender Matters”
for consultation. The final strategy is to be published in December 2005
5 The Office of the First Minister and Deputy First Minister published its Draft Strategy for Children and Young People in November 2004.
The Final Strategy is to be published in December 2005
08. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
What is Domestic Violence and Abuse?
Domestic violence and abuse is essentially a Domestic violence can include violence
pattern of behaviour which is characterised inflicted on, or witnessed by, children. The
by the exercise of control and the misuse of wide adverse effects of living with domestic
power by one person over another within an violence for children must be recognised as a
intimate relationship or a family. It is usually child protection issue. The effects are linked
frequent and persistent. It can include to poor educational achievement, social
violence by a son, daughter or any other exclusion and to juvenile crime, substance
person who has a close or blood relationship misuse, mental health problems and
with the victim. homelessness from running away.
Domestic violence occurs right across society. It is acknowledged that domestic violence
It knows no boundaries as regards age, can also manifest itself through the actions
gender, race, ethnic or religious group, sexual of immediate and extended family members
orientation, wealth, disability or geography, through the perpetuation of unlawful
but in the majority of reported cases women activities, such as forced marriage, so called
are the victims. ‘honour crimes’ and female genital
mutilation. Extended family members may
The abuse can go beyond actual physical condone or even share in the pattern of
violence. It can involve emotional abuse - for violence.
example: undermining of self-confidence;
threats to others including children;
controlling behaviour such as isolation from
friends and family; control over access to
money, personal items, food, transportation
or the telephone; the destruction of property
and stalking.
Why did my children have to lose everything including every photo of them
growing up... everything that we ever owned, due to one man and his violence?
Tackling Violence at Home 09.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
Definition
The definition of domestic violence
and abuse which is used for the
purposes of this strategy and which
all relevant agencies are encouraged
to use is: “threatening
behaviour, violence or abuse
(psychological, physical, verbal,
sexual, financial or emotional)
inflicted on one person by
another where they are or
have been intimate partners or
family members, irrespective of
gender or sexual orientation.”
I was five months pregnant and due to his beatings and kickings, I finally lost
the baby.
10. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
Patterns and Prevalence of Domestic Violence and Abuse
Domestic violence is a crime. It is abhorrent Cases reported to the police indicate that
and often hidden. Within our society, about 3 to 4 times more females than males
traditionally, the issue has been a taboo are victims of domestic violence. Most cases,
subject, not discussed openly and dismissed therefore, involve violence perpetrated by
by many as a private matter, with little or no men against women, but there are also male
emphasis on prevention. However, victims of female abuse and there are victims
organisations such as Women’s Aid at within the lesbian, gay, bisexual and
regional and local level, local domestic transgender communities.
violence fora, child care agencies, the police
and probation services have worked hard for Research and statistics indicate that:
many years to raise awareness about the • Domestic violence accounts for
problem, to prevent repeat abuse and to approximately one-fifth of all recorded
support victims. violent crime in Northern Ireland.6
• On average, there are five people killed
Some myths exist about the causes of each year as a result of domestic violence
domestic violence and abuse. These myths in Northern Ireland.7
include loss of control by, or provocation of, • On average every day in Northern
the perpetrators. Many people also believe Ireland, 12 women and 4 men are victims
that alcohol is the main cause. There are of domestic - related assaults.6
clear links between alcohol misuse and • The police attend an average of 60
domestic violence, in that the problem may domestic-related incidents per day, but
be exacerbated and the violence more severe recognise that there is still a large
when there is alcohol involved, but alcohol is amount of under-reporting of this type
not the cause. In reality domestic violence of crime.6
and abuse is usually a pattern of persistent • It is estimated that one in five
behaviour by the perpetrator designed to women and one in nine men will
achieve power and control over the victim.
6 Police Service of Northern Ireland Statistics 2004/05
7 Police Service of Northern Ireland Statistics
Tackling Violence at Home 11.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
experience domestic violence in the
course of their lifetime.8
• Domestic violence often starts or
escalates during pregnancy.9
• It is estimated that at least 11,000
children in Northern Ireland are living
with domestic violence.10
• Repeat victimisation is common. No other
type of crime has a rate of repeat
victimisation as high.11
• Victims are at greatest risk of homicide at
the point of separation or after leaving a
violent partner.12
• Each year about 700 families in Northern
Ireland have to be re-housed because of
domestic violence.13
8 Experience of Domestic Violence in Northern Ireland: Findings from the 2003/04 Northern Ireland Crime Survey
9 Violence Against Women – Royal College of Obstetricians and Gynaecologists
10 Children in Northern Ireland – Domestic Violence and Professional Awareness (PricewaterhouseCoopers, 2002) page 7
11 British Crime Survey England and Wales 2000. London: Home Office, 2000
12 Lees, S. 'Marital rape and marital murder', IN Hanmer, J et al. Home Truths about Domestic Violence: Feminist Influences on Policy and
Practice: A Reader. London: Routledge, 2000.
13 Statistics from Northern Ireland Housing Executive
12. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
The Cost of Domestic Violence
Each year in Northern Ireland millions of annually to society, because cases related to
pounds are spent across a range of services domestic violence and their associated costs
in dealing with domestic violence and its are not currently tracked by the courts, health
consequences. Significant resources are and social services trusts and other relevant
committed annually through: agencies, this will change in the future. As
• The criminal justice system (the police, agencies adopt domestic violence policies
the prosecution service, the courts, the under the strategy and the collection of
probation service) in relation to victims statistical data improves, it will be possible in
and perpetrators future years to track cases and their
• The civil courts in dealing with family associated costs and to assess annually the
proceedings overall cost to the public of dealing with
• The provision of legal aid domestic violence.
• The various health and social services
(in hospitals and in the community) in In the meantime some indication of the
providing services for victims and their annual cost of dealing with domestic violence
families within Northern Ireland can be derived from
• The housing services in providing recent research undertaken in England
housing, refuge accommodation and and Wales.
out-reach services
• Funding of voluntary organisations such Research published in September 200414
as Northern Ireland Women’s Aid estimated the cost of domestic violence to
Federation for the Domestic Violence society in England and Wales at £23 billion
Helpline, Victim Support Northern Ireland each year. The methodology used was based
and other services in support of victims. on the Home Office’s framework for costing
crime. £6 billion of the total estimate for
Although it is not possible, at present, to put England and Wales was related to the direct
a hard figure on the total overall cost cost of providing services to deal with
14 The Cost of Domestic Violence – Sylvia Walby (University of Leeds) September 2004
Tackling Violence at Home 13.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
domestic violence (police, criminal justice approximate estimate of the annual costs
system, health and social services care, here can be obtained by extrapolating the
housing, and civil legal cases) and to the loss research figures for England and Wales on a
of economic output through time off work pro-rata population basis. Using this process
due to victims’ suffering. it is estimated that the direct cost of services
(i.e. for police, criminal justice system, health
The research indicated that it would be and social services care, housing, civil legal
misleading and incomplete to restrict the cases and legal aid) plus the loss of
economic costs of domestic violence to those economic output in Northern Ireland due to
associated with services and employment domestic violence, could amount to about
only. Like other crimes, domestic violence £180 million each year. A similar estimate for
generates significant “intangible” costs the “intangible costs” associated with the
associated with pain and suffering, and the pain and suffering of victims could amount to
research acknowledged that to omit these in some £500 million each year in Northern
relation to domestic violence would falsely Ireland.
represent this type of crime as less costly
than other violent crimes. The research These figures highlight the enormous cost of
therefore followed the practice adopted by domestic violence to society generally and
government departments, such as the Home the immense human and emotional costs to
Office and the Department for Transport, by individuals and their families who suffer the
estimating these human and emotional costs violence and its consequences. The figures
on the basis of the public’s ‘willingness-to- also underline the need to adopt a more
pay’ to avoid pain and suffering - this strategic and co-ordinated approach to
element accounted for £17 billion of the tackling the violence, making the best use of
estimated £23 billion annual cost for England available resources to provide better support
and Wales. to victims, and to make perpetrators more
accountable for their actions.
There has been no similar research
undertaken in Northern Ireland. However, an
Domestic Violence. End the Silence. Call 0800 917 1414. The Helpline is open to
anyone affected by domestic violence.
14. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
The Response to Date and the Problems in Tackling
Domestic Violence
It is also important to acknowledge some of
The Response to date the key initiatives which have been
It is important to acknowledge that a lot of introduced over the last decade to help
excellent work has been done over the past victims and their families. For example, the
decade, and continues to be done, by a introduction in 1995 of a 24-hour Helpline by
number of voluntary and statutory agencies Northern Ireland Women’s Aid Federation and
across Northern Ireland to address the many the continuing development of Women’s Aid
different aspects of domestic violence. services at local level, including their refuge
and outreach services, have provided
Following publication of the 1995 policy enormous support for female victims and
document, structures were put in place at their children. The Helpline has since been
regional level (the Regional Forum on developed to introduce a textphone facility
Domestic Violence) and at local level (11 for hearing impaired people and
Local Domestic Violence Fora) to bring interpretation facilities for non-English
together all the key players to share speaking callers and more recently into a
knowledge and experiences, to undertake free-phone service for any victim regardless
awareness raising and some training and to of gender.
address issues at local level. Much progress
has been made since then and the fora and In recent years, organisations such as Men’s
the agencies involved deserve much credit for Advisory Project, Men-to-Men and Rainbow
the significant contribution they have made have developed some support and
in working together to address the problems, counselling services for male victims and
to raise the profile of domestic violence, and, victims in same-sex relationships.
most importantly, to provide help and
support to victims. Another important development has been the
introduction of the Supporting People
The caller to the Helpline had recently given birth by caesarean section. Her
husband had kicked her in the stomach and thrown her outside.
Tackling Violence at Home 15.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
initiative in 2003, which allows the Northern Women’s Aid, has undertaken some
Ireland Housing Executive to provide successful work with perpetrators aimed at
accommodation - based support to domestic reducing the incidence of re-offending while
violence victims. Many households offering increased support to victims.
experiencing domestic violence need
housing-related support either to allow them Clearly, therefore, a lot of good work has
to remain safely in their own homes or to already been done. These developments and
help if they need to move. The Housing the ongoing work of a variety of agencies
Executive published its first Supporting have collectively contributed to an increasing
People Strategy this year and it highlights awareness among the general public about
how the Housing Executive will work with all domestic violence and its consequences and
its partners to address the needs of domestic about the services available to victims.
violence victims.
However, feedback from the 2003
In recent years the Police and the Courts consultation exercise indicated that there is a
have developed better support for victims need to raise the profile much further; to
through the provision of dedicated PSNI develop preventive work; to change attitudes;
Domestic Violence Officers and through the to make improvements in service provision;
introduction of more informal proceedings to develop education and training; and to
and special measures in court (such as live improve co-operation and co-ordination
link and the use of screens) to assist victims. among the range of policy-makers and
There is also speedy access to the courts for service providers who have a role in
ex-parte civil orders. Resident Magistrates addressing the problem.
allocate time for applications in private at
any court hearings within the relevant Petty Problems In Tackling Domestic Violence
Sessions District or County Court Division. Domestic violence is a complex issue that
requires a strategic approach. It can be very
In addition, the Probation Service, in difficult to deal with because much of the
conjunction with Social Services and violence and abuse takes place behind closed
Why should we leave our home? Why should our children be taken from their
schools, family and friends? My children and I are not criminals… but HE IS.
16. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
doors. Many victims suffer in silence, afraid and a lack of overall training, co-ordination
for themselves and their children and so most and monitoring.
incidents of this crime go unreported. Some
myths and outdated attitudes remain within
our society about a form of violence that
was historically acceptable. The abuse
occurs in relationships where emotions may
be high and loyalties divided. Victims may
disregard their own safety and stay in
abusive relationships for reasons such as
embarrassment, fear and confusion,
financial insecurity or a desire to keep their
families together.
It is also clear from the responses to the
consultation that these difficulties may have
been complicated by an overall response
which has not always been consistent and
has not been co-ordinated across Northern
Ireland. In addition, data on domestic
violence cases has not been collected
routinely nor in a standard format by many of
the relevant agencies. There has also been
constrained access to services for victims
through: a lack of information;
confusion about the roles of the various
service providers; inconsistent geographical
provision; lack of or inconsistent funding;
I can't believe it! He's such a nice guy!
Tackling Violence at Home 17.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
The Government’s Vision and Commitment
The Government acknowledges that domestic positive and consistent action as set out
violence is a serious problem in Northern below. The subsequent sections on the
Ireland and is committed to working towards strategy’s aims and delivery plans then detail
its eradication. Every person should be able how the vision can be achieved.
to live in a safe and secure environment in a
society where domestic violence and abuse is The Vision
unacceptable. The Government recognises The Government’s vision incorporates:
that it has a duty to do what it can to secure
such an environment. It is committed to Consistent positive action from the
improving protection for all victims of Government Departments and their
domestic violence and to providing them Agencies, including:
with appropriate information and support. All • A clear, unequivocal message that
victims must be aware of the options open to domestic violence is a crime, is
them so that they can make informed unacceptable and will not be tolerated
decisions about the route they wish to take • A consistent demonstration of the
to end the violence and rebuild their lives. importance of joint-agency collaboration
Whether or not they seek the protection of and joint-agency policy implementation
the courts, victims must be made aware of, including good information-sharing
and have access to, all the support that is • The provision of dedicated resources to
available from all the statutory and voluntary address policy and practical issues
agencies. Government is also committed to a • Research and replication of best practice,
more effective response to people who effective responses and interventions.
perpetrate violence and to persons convicted
of domestic violence offences. The development of better, more equitable,
accessible and effective service provision
The Government’s vision for effectively providing:
addressing domestic violence incorporates
We need to know that our abusers will face stiff penalties. We need to know that
there is security and safety for us. We need to know that we can keep our homes.
18. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
• A co-ordinated network of services that • Less public silence and more debate
meet the needs of all victims about domestic violence and abuse and
• Appropriate protection and support for its consequences for victims and their
all victims experiencing domestic violence children
• Appropriate safe solutions for all victims • Co-ordinated services which prioritise
escaping domestic violence victims’ and their children’s safety
• Easily accessible information to ensure • A range of services, sufficiently flexible to
that help is available for any victim meet individual needs yet standardised
• Education and training to help prevent enough for victims to be able to safely
domestic violence or to identify it early rely upon them
and provide help and support. • An approach that encourages
empowerment and self-determination.
Improved protection and support for
victims and effective deterrents through: For children who live in violent homes
• Holding perpetrators accountable for there should be:
their behaviour • Services that protect them from the
• Changing the criminal and civil law consequences of being exposed to
where necessary. domestic violence
• Help, support and advocacy to ensure
What does the vision mean for victims, that they are not left to deal with their
for children, for perpetrators, for experiences alone
service providers, and for society • Information that the violence they have
generally? experienced is wrong, legally and morally
• Opportunities to share their experiences
For victims who experience domestic with other children so as to reduce
violence and abuse, there should be: their isolation.
• A clear message that domestic violence is
a crime and that it will not be tolerated
I am disabled and I fear reporting the abuse because I rely on him for personal
assistance and financial support. What if I can’t find another carer?
Tackling Violence at Home 19.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
For perpetrators of domestic violence and The benefits for the population generally
abuse there should be: should be:
• Interventions designed to hold them • Increased understanding of domestic
accountable for their behaviour violence and its unacceptability
• Opportunities to help them to address • Better information for victims and their
their offending behaviour family and friends who provide support
• Negative consequences sufficient to act • A reduction in the prevalence and
as a deterrent. severity of domestic violence
• A reduction in repeat victimisation
For practitioners who provide services there • A reduction in the long-term negative
should be: consequences of domestic violence for
• Training and support for all relevant staff victims and their children
• Standard definitions relating to domestic • A reduction in the direct and indirect
violence service provision allowing all costs associated with domestic violence
agencies to work towards a common • A safer community
purpose
• Good practice guidelines and standards
against which services can be assessed
and compared.
For departments and agencies that
resource domestic violence services there
should be:
• Monitoring to track the effectiveness of
the strategy
• Better data to ensure that future services
can be targeted effectively.
I went to the police once... the gist was “Look at the size of you. Go home and
sort it out yourself”.
20. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
Roles and Responsibilities
The key requirement for successful encouraged to proactively address
implementation of the strategy is domestic violence and contribute to the
commitment to a shared purpose across all implementation of the strategy
the relevant partner departments and • ensure that appropriate sanctions and
agencies, at both regional and local level. The sentencing options are available to courts
Government is committed to achieving • promote equality of opportunity for all in
sustained and effective action across a wide accessing services
range of agencies and professional fields in • ensure there is monitoring and feedback
pursuit of the strategy’s aims and objectives. about progress on implementation of the
strategy across all departments and
The relevant Government Departments and agencies.
their agencies will:
• ensure that the Government’s The Criminal Justice Agencies (i.e. the
commitment to tackling domestic Police Service, the Public Prosecution
violence and abuse in Northern Ireland is Service, the Court Service and the
known at all levels Probation Service) will:
• work together proactively and in • ensure that domestic violence is dealt
partnership with voluntary and with as a crime wherever appropriate
community organisations and with local • recognise that the way in which they
domestic violence partnerships to take respond to cases of domestic violence is
forward the strategy on a corporate basis critical to effective implementation of the
• ensure, as far as is possible, that strategy
adequate additional resources are • work effectively with other key partners
allocated to implement the strategy at regional and local level to take
• ensure that other agencies to which they forward the strategy on a corporate basis
relate and employers generally are
The violence is bad, but it’s the emotional side of what happens - the shame, the
embarrassment and, because I’m a man, the not being believed is worse.
Tackling Violence at Home 21.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
• promote equality of opportunity for all (statutory and voluntary) at regional and
accessing protection and justice services local level to take forward the strategy on
• facilitate court-mandated perpetrator a corporate basis
programmes in partnership with • promote equality of opportunity for all in
Women’s Aid. accessing domestic violence services
• provide constructive feedback on services
Local Domestic Violence Partnerships will: received from various agencies and
• ensure that they involve in their departments and make suggestions for
partnerships representatives of all improvement
relevant agencies in their localities, • participate in relevant training initiatives
including community safety partnerships, for statutory departments and agencies.
to take forward the strategy on a
corporate basis
• adopt Regional Good Practice Guidelines
and Standards and audit and monitor
their effectiveness
• develop local initiatives in line with the
strategy’s aims
• work with each other, with all the
relevant agencies and with the Regional
Steering Group to implement the strategy
• promote equality of opportunity for all in
accessing domestic violence services.
Relevant Voluntary Organisations will:
• work together proactively and in
partnership with all the relevant bodies
All the statutory and voluntary agencies are committed to working in partnership
on Local Domestic Violence Partnerships and on the Regional Steering Group.
22. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
The Aims of the Strategy
The ultimate goal is to put in place all These aims will be achieved through the
practicable measures towards the elimination successful implementation of all the elements
of domestic violence and abuse. Progress of the strategy, the initial Action Plan and
towards that goal can be achieved through subsequent annual Action Plans.
the following aims.
The strategy is aimed at everyone in
Overall Aims Northern Ireland: victims who
The overall aims of the strategy are: experience or witness domestic
• To improve services and support for all violence, the perpetrators of abuse,
victims of domestic violence politicians, policy makers, service
• To develop and deliver a high quality, providers, people working within the
co-ordinated multi-agency response to justice system, and the general
domestic violence public - all have a role in the
• To further increase and develop elimination of domestic violence and
awareness generally about domestic abuse.
violence and the measures in place to
help the victims
• To educate children and young people
and the wider general public that
domestic violence is wrong and is
unacceptable and to enable them to
make informed choices
• To hold perpetrators/abusers accountable
and provide effective interventions for
their behaviour.
I am elderly, treated like a child and isolated from my friends. Cheques have been
cashed without my authorisation and I have been coerced into signing documents.
Tackling Violence at Home 23.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
Delivering on the Aims
This section sets out in some more detail, professionals know how to respond to early
under the headings of Prevention; Protection signs of abuse. Actions under the Prevention
and Justice; and Support: strand of the strategy are therefore aimed at:
• the main issues that need to be
addressed • preventing domestic violence happening
• the progress that has already been made in the first place, through changing public
• broad proposals for achieving the aims of attitudes to it (particularly among
the strategy in the future. young people)
A section on Other Priorities is also included • general public education and media
to highlight other key issues which do not fall campaigns
neatly under Prevention; Protection and • identifying and tackling risk factors e.g.
Justice; and Support headings, but which are during pregnancy; and links with alcohol
nevertheless crucial to the delivery of the and substance misuse
strategy’s aims. • providing help for all victims of domestic
violence as early as possible to prevent
Further and more specific details on the abuse recurring
initiatives, which translate the broad aims • providing advice and information to all
and themes into action points and target victims on how to get access to support
dates for achievement, are then set out in services and legal protection
the accompanying Action Plan. • preventing offenders, wherever possible,
from re-offending.
Prevention
Preventing domestic violence occurring in the Progress to date
first place is a priority. It is essential that There has been some significant progress in
anyone affected by domestic violence has this area in recent years. Examples are:
access to information and advice and that A successful 2-year pilot project on Non-
If sporting institutions took the issue of domestic violence seriously it could be a
really effective way to influence boys’ and men’s behaviour.
24. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
Violent Relationships to reduce the level of Healthy Relationships” have been delivered
domestic violence, was run in Belfast by the by local Women’s Aid Groups.
Probation Board, 2 Health and Social Services
Trusts and Belfast and Lisburn Women’s Aid, Some employers, including South and East
working with male perpetrators and their Belfast HSS Trust, Derry City Council and the
female partners and with young people. NI Court Service have introduced workplace
policies on domestic violence to provide help
A high-profile publicity campaign was and support to victims at work. Agreement
successful in raising awareness and has also been reached with the Northern
promoting the new Free-phone Helpline Ireland Civil Service Departments and the
service for anyone affected by Northern Ireland Office to introduce a civil-
domestic violence. service-wide policy and guidance on
Domestic Violence and the Workplace.
A successful pilot scheme to routinely ask
pregnant women about domestic violence Key Preventive Measures for the future
was undertaken by midwives at the Royal It is acknowledged that considerable further
Jubilee Maternity Unit in conjunction with benefit can be achieved in the area of
Belfast and Lisburn Women’s Aid and NI prevention. Further developments and
Women’s Aid Federation. Other HSS Trusts initiatives to be rolled out under Action Plans
have now also introduced Routine Enquiry will therefore include:
and consideration is now being given to the
policy being rolled out across all Educating children and young people in
maternity units. school so that future generations know about
healthy relationships, are informed that
Preventive education work has been carried domestic violence is a crime and is
out in a number of primary and secondary unacceptable. The introduction of the revised
schools using programmes developed by NI curriculum will provide opportunities through
Women’s Aid Federation. Programmes such various learning areas and contributory
as “Helping Hands” and “Heading for
I was really lucky to have a boss who supported me when my ex-partner began
hanging around where I worked.
Tackling Violence at Home 25.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
strands to get these messages across private, voluntary and community sectors will
to children. be encouraged to adopt workplace policies
on domestic violence.
Educating the wider general public is also a
vital component to open up debate on the Another important factor in helping to
seriousness of the problem and to focus prevent the recurrence of abuse will be the
more attention on perpetrators. Publicity further development of projects on work with
campaigns will therefore be organised on an perpetrators to help them to take full
ongoing basis. Information for victims will be responsibility for their actions and to change
further developed so that details about the their behaviour.
help and support available from various
agencies is readily accessible to anyone Summary of key preventive
seeking it. measures for the future
• educating children and young
All professional and other relevant staff, people
particularly those in the health and social • raising awareness and improving
services and education sectors, but also those information
in a range of other statutory, voluntary and • training professional and other
community sector organisations need to have staff
appropriate guidance and training to enable • encouraging workplace policies
them to identify victims of abuse early and • working with perpetrators
offer help and support. Good practice
guidance, toolkits or resource manuals will Protection And Justice
therefore be developed along with a multi- It is vital that victims of violence and abuse
agency training strategy. have access to information about the criminal
and civil law protections available to them
Workplaces generally provide excellent and that they receive a positive response
opportunities to offer help and support to from government, the police and the criminal
victims. All major employers in the public,
Domestic Violence. End the Silence. Call 0800 917 1414. The Helpline is open to
anyone affected by domestic violence.
26. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
justice agencies. Actions under the Protection Under the criminal law, the Domestic
and Justice strand of the strategy are Violence, Crime and Victims Act 2004 will
therefore aimed at: provide new powers in respect of:
• ensuring the safety of all those affected • the availability of restraining
by domestic violence and holding orders when a defendant has
perpetrators accountable for their been acquitted;
behaviour • the establishment of Domestic
• ensuring a consistent and effective police Homicide Reviews; and
response to every reported incident of • a new power of arrest for
domestic violence common assault (introduced
• engaging victims of domestic violence July 2005).
with the prosecution process
• ensuring that sentences are available that Under the civil law, the Law Reform
reflect the crime (Miscellaneous Provisions) Order 2005
• ensuring that victims are not deterred by extends and clarifies the categories of people
the way they are be treated at any stage who can apply for non-molestation and
of the justice process occupation orders, including those in same-
• making sure that the civil and criminal sex relationships. It also clarifies the period of
law offers the maximum protection to all time for which ex-parte orders can be made
victims to stop the violence recurring and increases the tariff for breach of
• updating the law on domestic violence to protective orders.
give further protection to victims.
The PSNI has developed and issued a new
Progress to date domestic violence policy. The policy aims to
There has been substantial progress in both provide a consistent, pro-active and effective
the civil and criminal justice systems’ response to every domestic incident. Where a
response to domestic violence over the past power of arrest exists, then only in
few years. Examples are: exceptional circumstances will the
I was in tears most of the time I was in court. Just being that close freaked me out
even though I knew he couldn't do anything to me.
Tackling Violence at Home 27.A STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
perpetrator not be arrested. Domestic The PPS recently launched its draft “Policy for
Violence Officers are now responsible for the Prosecuting Cases of Domestic Violence” for
investigation of serious assaults including consultation. This draft policy outlines how
repeat offences. PSNI has also agreed to cases of domestic violence are dealt with and
serve all ex-parte and non-consent non- what the public can expect from the PPS in
molestation and occupation orders. respect of these cases.
The Public Prosecution Service has developed There are a range of special measures
an enhanced range of services for victims, available to victims of domestic violence on
including victims of domestic violence. application to the court (for example, giving
Regional Community Liaison teams have evidence by way of live link, removal of wigs
been established the in the Belfast Region and gowns, giving evidence in private, use of
and in the Western and Southern Region. screens) and many court venues have been
These dedicated, specially trained units equipped to enable victims to access these.
provide a telephone information line service.
On request, victims can be directly referred to The Northern Ireland Court Service has
specialist support agencies such as the carried out domestic violence awareness
NSPCC or Victim Support. Information is also training for Court Clerks, staff on counter
sent via letter to victims at key stages in the duties and security service providers. This was
prosecution process. Extensive training of facilitated by Women's Aid, PSNI and Victim
both prosecutors and law clerks has also Support. All new court-based Court Service
been carried out in respect of special staff will receive domestic violence awareness
measures to ensure application is made to training on induction. The NI Court Service
the court for them when appropriate. This has also introduced a Domestic Violence
training is ongoing in respect of new lawyers. Workplace Policy and Guidance for its staff.
A dedicated special measures intranet
resource is also available to all staff in The Victim Support Court Witness Service (for
the organisation. adult prosecution witnesses) and the NSPCC
Young Witness Service (for young prosecution
She has threatened to stab me some night when I am sleeping. I can’t sleep
properly now. She will just open the door and that is me awake all night.
28. Tackling Violence at HomeA STRATEGY FOR ADDRESSING DOMESTIC VIOLENCE AND ABUSE IN NORTHERN IRELAND
witnesses) are available in all Crown Courts Training for the Court Service on domestic
in Northern Ireland. They provide a range of violence and the availability of special
support services to victims and witnesses measures for victims.
called to give evidence at court. The services
available include: a visit to the court prior to Developing, in partnership with criminal
the trial; an explanation of what happens at justice and voluntary agencies, a training
the court; advice about any concerns; programme for lawyers in respect of the
providing a quiet place for the witness to Public Prosecution Service’s domestic violence
wait before and during the hearing; and policy.
accompanying the witness into the court
room to give evidence. A pilot Court Witness Developing further the consistent sharing of
Service has also been available in Belfast relevant and appropriate information
Magistrates Court from June 2004. between civil and criminal courts and the
criminal justice agencies.
Key Protection and Justice Measures
for the future Streamlining processes within the Public
The criminal justice agencies recognise the Prosecution Service through, for example, the
need to intensify their efforts to ensure that implementation of an advanced case
victims are given the protection they deserve management system and the introduction of
and that perpetrators are held fully Causeway IT Programme.
accountable for their crimes, and to increase
public confidence in their services. Further Further developing and implementing
developments and initiatives to be addressed positive interventions through court-
under Action Plans will therefore include: mandated perpetrator programmes.
Ensuring that information on the civil and Establishing Domestic Violence Homicide
criminal law and the court process is Reviews to identify the lessons to be learnt
consistently available. and to improve inter-agency working.
The physical aspect is bad enough, but the scars eventually heal through time. The
emotional scars never heal.
Tackling Violence at Home 29.You can also read
