Publications > Crime & individuals
Break the Chain Multi-Agency Guidance for Addressing Domestic Violence
CONTENTS
2. Guidance to individual agencies
Foreword
Domestic violence currently wrecks the lives of thousands of women and children in the UK. It is a major cause of family distress and social exclusion and it is something which we are determined to tackle effectively.
Domestic violence is rarely a one-off event. One violent incident tends to lead to another, and such incidents often increase in frequency and severity over time, sometimes only ending when someone is killed. We must break this chain of events.
A great many individuals and organisations in the statutory, private and voluntary sectors are committed to doing just that. I pay tribute to their dedication and energy. There have been huge achievements over the last few years, but much more work still remains to be done. No one agency on its own can address the full range of problems created by domestic violence. To tackle domestic violence effectively, to reduce its incidence and to help its survivors, all the interested parties must come together to play their role.
The criminal justice system takes all violent crime seriously, including domestic violence. There are, however, many domestic violence cases which never come to its attention. Women experiencing violence from a partner or ex-partner are likely to come into contact with health or social services; they may approach housing departments for help to live free of the violent relationship; they, or their children, may be known to staff in other local authority departments. Staff in all such agencies and departments, as well as throughout the criminal justice system, must be aware of the prevalence of domestic violence and the possibility of its presence in the cases with which they deal. They must know and look for the signs and know what to do when they find them.
To be effective, the agencies must work together, not in isolation nor perhaps at cross-purposes. They must co-ordinate their response. Partnership working between different public agencies might at times seem time-consuming and difficult. However the benefits to be gained from such work should not be underestimated. Investing time and effort at this stage is essential to tackle the appalling effects of domestic violence and in the long term, if we are successful, to reduce the immense economic cost of dealing with such crime and its consequences
This guidance delivers the commitment within our domestic violence prevention campaign entitled Break the Chain to offer guidance to statutory agencies, and takes forward our agenda on violence against women outlined in Living Without Fear - an Integrated Approach to Tackling Violence against Women, published jointly by the Home Office and the Women's Unit.
The guidance sets out some of the issues that agencies should bear in mind and some of the ways in which they might address domestic violence effectively. It also offers examples of current practice from around the country which organisations can use and adapt according to local circumstances, should they so wish. I commend it unreservedly. We must not tolerate domestic violence. Together we can work towards a future where women can live without fear.
PAUL BOATENG
MINISTER OF STATE AND DEPUTY HOME SECRETARY
1. Introduction
This publication and its purpose
1.1 This publication replaces the 1995 Home Office/Welsh Office Inter-Agency Circular on domestic violence. It has been prepared and published by the Home Office in collaboration with the Women's Unit (Cabinet Office), the Crown Prosecution Service, the Department for Education and Employment, the Department of the Environment, Transport and the Regions, the Department of Health, the Lord Chancellor’s Department, the Department of Social Security, the National Assembly for Wales, and the Department of Culture Media and Sport. It relates to England and Wales only.
1.2 The publication aims to raise awareness with all agencies falling within the policy remit of the Departments concerned. It sets out some of the general issues that they all should bear in mind along with some of the ways in which together and individually they might address domestic violence effectively. It seeks to give a background and framework for carrying out this work, rather than giving detailed operational guidance. Part 4 of the publication gives details of some further sources of information.
1.3 Partnership working is essential to providing a comprehensive response to the wide range of needs that domestic violence survivors may have. This document therefore sets out to encourage and support effective multi-agency working as well as addressing specific statutory agencies.
1.4 The success of any strategy or initiative will be affected by local circumstances. While over-all principles of good practice remain the same, what works well in one area may not be so effective somewhere else. The "good practice" examples in this guidance are not definitive ways of working. Instead they are examples of current practice where particular consideration has been given to how best to tackle domestic violence. They feature as a source of material and ideas for others, who can learn from their lessons and modify them as appropriate for local conditions.
The background to the publication
1.5 Statistics tell us that domestic violence adversely affects a large number of women throughout England and Wales. Commitment to addressing it effectively has, however, continued to grow since 1995. Individual agencies, nationally and locally, have looked at their policies and practices; the majority of local authority areas have set up some kind of inter-agency domestic violence forum; lessons have been learned on what might be most effective.
1.6 The Crime and Disorder Act 1998 has placed a requirement on local authorities and the police to form local crime and disorder reduction partnerships, and the Government has made it clear that it expects these to address domestic violence in their local audits and the strategies derived from them. The Government wants to see effective partnerships to address domestic violence across the country that includes full consultation with non-governmental organisations and close working with existing domestic violence fora.
1.7 Other changes to the legal framework surrounding domestic violence have included the implementation of the Protection from Harassment Act 1997 and of Part IV of the Family Law Act 1996. The former makes it a criminal offence to behave in a way which a person knows, or ought to know, causes someone else harassment or fear of violence. This criminalises much domestic violence of a psychological (rather than a directly physical or sexual) kind. The latter introduces a simplified and more consistent set of civil orders to deal with molestation and occupation of the family home which can be used in cases of domestic violence. They can be sought from any court with family law jurisdiction. The Youth Justice and Criminal Evidence Act 1999 is a further important addition to the legal framework, providing a range of measures designed to provide support and protection for victims and witnesses, including in domestic violence cases, so that they can give their best evidence in court.
1.8 Living Without Fear is the Government’s publicity and awareness campaign to tackle violence against women. A key element within this campaign is the Break the Chain domestic violence leaflet and poster entitled "What you can do about domestic violence" launched in January 1999. This leaflet is aimed at both people experiencing domestic violence and others who might be able to help them, such as friends, neighbours and relatives. It gives general information on domestic violence and lists a range of support agencies. Staff in the agencies to which this guidance is addressed should be familiar with the leaflet and the associated poster and should make them known to members of the public who use their services.
The definition of domestic violence.
1.9 Domestic violence is not a specific statutory offence. The term is used to describe a range of criminal offences - and sometimes sub-criminal behaviour - occurring in particular circumstances. As a result, there are many different definitions of domestic violence. A shared definition or understanding is, however, important for agencies working together locally, both to ensure effective operations and to ensure meaningful and comparable data when assessing progress and use of resources.
1.10 From 1 April 1999 HM Inspectorate of Constabulary has used the following definition for the purpose of the returns of reported incidents which it requires from police forces:
The term ‘domestic violence’ shall be understood to mean any violence between current or former partners in an intimate relationship, wherever and whenever the violence occurs. The violence may include physical, sexual, emotional or financial abuse".
1.11 This definition was introduced for the purpose of harmonising statistics across England and Wales. There was no intention of affecting police operational policy or preventing the use of different definitions locally for individual forces’ own purposes. It does, however, reflect the Government’s particular concern to deal effectively with all forms of violence between current and former partners.
1.12 The definition excludes other violence that might be perceived as being in a domestic context, such as the abuse of children or of elderly or disabled family members. Such violence is still important, but relative to partner abuse it is different, raising different issues and needing specific procedures and practices to tackle it effectively.
1.13 There is also a danger that a wider definition might cause confusion and dilution of effort and impact. Research continues to show that violence from one partner to another may be wrongly seen as to some extent acceptable. It may also be seen as not very serious or a real crime, or seen as a private matter in which agencies such as the police should not intervene. While it is important to recognise the potential links between partner violence and, in particular, with child abuse, it is important not to marginalise partner violence in favour of addressing other violent occurrences. In deciding their definition of domestic violence, agencies must take this fully into account.
About domestic violence
1.14 As the above definition makes clear, domestic violence includes all kinds of physical, sexual, emotional and financial abuse between people who are or have been partners, in other words between those generally recognised as a couple, whether or not married and whether or not cohabiting.
1.15 Typically the violence involves a pattern of abusive and controlling behaviour which tends to get worse over time. It can take a number of forms. Some are directly and indirectly physical, such as assault, indecent assault, rape, destruction of property and threats. Some are non-physical, such as destructive criticism, pressure tactics, belittling, breaking trust, isolation, oppressive control of finances and harassment. The physical manifestations of domestic violence are criminal offences; the non-physical forms may also amount to offences, under the Protection from Harassment Act.
1.16 People experience domestic violence regardless of their social group, class, age, race, disability, sexuality and lifestyle. The abuse can begin at any time - in the first year or after many years spent together. It may begin, continue, or escalate after a couple have separated and may take place not only in the home but also in a public setting, such as in the street or in a public house.
1.17 Compared with men, women are more likely to experience domestic violence at some point in their lives, more likely to experience repeat victimisation, more likely to be injured and to seek medical help, more likely to experience frightening threats and more likely to be frightened and upset. For this reason this publication refers to victims as women. Agencies should however continue to recognise that some domestic violence does occur where the person experiencing violence is a man, and the perpetrator is a woman. In addition the should also be aware of the prevalence of domestic violence within same sex relationships.
1.18 Research studies have found that one woman in four reports experiencing domestic violence at some time in her life. Every year in England and Wales around 63,000 women and children spend at least one night in a refuge. Of 224 female victims of homicide in 1997, 47% were killed by their current or former partner: this means that approximately every three days one woman dies as a result of domestic violence. A number of studies have also remarked on the psychological impact on victims of living with domestic violence. These include anxiety, sleeping problems, loss of self-respect, low self-worth, feelings of hopelessness, depression and loss of confidence; the effects can lead to self harm, and actual or attempted suicide.
1.19 The emotional and physical harm caused by domestic violence is itself a compelling enough reason for agencies to act. It is, however, also worth considering the financial implications for the public sector. Professor Elizabeth Stanko and colleagues (1998) have estimated the total cost in 1996 to the public sector of providing services to women and children facing domestic violence in the London Borough of Hackney at around £90 per annum for every household in the borough. Her report estimated the total cost for Greater London to be around £278 million per annum. Thus any reduction in the number of domestic violence incidents has the potential for significant financial savings.
Basic points for all agencies
1.20 The following basic points are for consideration by all agencies which may have to deal with domestic violence and its survivors.
1. All agencies must be fully aware of the level and nature of domestic violence, of the need for their policies and practices to address it, and of its possible presence in cases with which they have to deal. Importantly, this includes those cases which originally come to their attention for other purposes.
2. Domestic violence training is important for staff at all levels.
3. When dealing with individual cases, the priority for agencies must be the client’s safety. They should themselves undertake such emergency action as they can.
4. As employers, agencies should develop appropriate responses to members of staff who may be experiencing or perpetrating domestic violence.
5. Agencies should ensure that information about both statutory and voluntary domestic violence services is available to staff and the public in an accessible format.
6. Participation with local inter-agency domestic violence fora is desirable where such fora exist, but must be seen as a means to an end, not an end in itself.
7 Agencies should work to create a safe and supportive environment which encourages people to report domestic violence.
8. Services must be fully accessible to all. Agencies must be aware of the needs of women from ethnic minorities, those with disabilities, elderly people, those with drug or alcohol dependency, people with mental health problems and those in same sex relationships.
9. The success of any initiative to reduce domestic violence depends on a careful implementation strategy and needs to be confirmed by thorough evaluation and monitoring.
10. Agencies should consider the importance of information sharing (section 115 of the Crime and Disorder Act) as a valuable part in the co-ordination of their client based services. (see section 3.25)
2. Guidance to individual agencies
2a Statutory crime and disorder reduction partnerships
2a.1 Ministers have made it clear that the Government expects the partnerships set up under the Crime and Disorder Act 1998 to identify the level of domestic violence in their area and to develop a strategy for addressing it as part of their wider crime reduction strategy.
2a.2 Establishing the extent - and hidden costs - of domestic violence is an essential first step in targeting appropriate resources to address it. This can however be difficult because domestic violence is regularly both under-reported and under-recorded. It is essential to go beyond standard statistics on reported crime and to approach agencies other than the police for relevant information. It is important also in so doing to be aware that the type of information recorded can vary widely between agencies. For example, some agencies (such as social services, for example) may not record incidents as domestic violence if the initial referral is for some other reason (such as child protection). In addition data on what areas suffer the most domestic violence may be skewed by the presence in those areas of agencies with better recording practices. Those agencies with better recording practices should not be mistaken for areas of unusually high prevalence.
2a.3 It is often the case that as the collection of statistics improves, figures go up rather than down, despite the introduction of new initiatives designed to reduce domestic violence. The new initiatives themselves may also lead to greater reporting of domestic violence. It is important to accept that a rise in recorded incidents of domestic violence may be an inevitable first stage as both the levels of public awareness and of confidence in agencies increase, and as organisations work to reduce the number of actual incidents.
Good practice example: |
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Croydon Domestic Violence Audits Croydon conducted two audits as part of their work under the Crime and Disorder Act. One focused on a quantitative survey of statistics kept by all agencies in the Borough (statutory and voluntary), the second focused on a qualitative survey of the views of women experiencing violence, including their views of different service providers. The audits were particularly useful in revealing gaps in service provision. Contact: Rohan Collier Phone: 020 817605430 |
2a.4 Research suggests that a significant number of those experiencing domestic violence do not report it to anyone. However they may still, for other reasons, come into contact with a wide range of service providers, including the police and courts, health professionals and local authority departments such as housing and social services. It is vital to the success of local strategies that these agencies should be alive to the possibility of domestic violence in their cases and as approachable and accessible as possible so that all those who have experienced domestic violence, including this ‘hidden’ population, can be given appropriate support. Many staff will be well aware of the problems of domestic violence; some may be less so, and the need for awareness raising and training should always be borne in mind.
2a.5 Domestic violence survivors also frequently turn to non-statutory agencies such as Women’s Aid and other refuge services, Victim Support, and other voluntary sector service providers. In taking forward their strategies, partnerships will need to work closely and sensitively with non-statutory groups specialising in this area and to liaise with representative organisations whose knowledge can be a valuable resource. This is particularly important with organisations serving and representing specific groups within the local community, including ethnic minority and faith organisations.
2a.6 The Government wants to see partnerships operating effectively to tackle domestic violence across the country. Domestic violence fora already bring together local agencies committed to tackling domestic violence. Where they exist, it is vital that the new crime reduction partnerships work closely with them, whatever the constitutional and structural relationship they adopt. Where such fora do not exist, crime and disorder reduction partnerships are encouraged to consider their own responsibilities in this area, and whether the establishment of a fora would be an effective method of developing work in tackling domestic violence. Further advice is given in section 3.
2a.7 The effective sharing of information between organisations (as described under section 115 of the Crime and Disorder Act) is an essential part of partnership, enabling improved co-ordination of services to individuals and families, and ensuring that staff from support services can provide support that is effective and based on an informed knowledge of a client's circumstances. Further advice is given in section 3.25 onwards.
2b The criminal justice system
i. Courts and the Court Service
2b.i.1 The Government is concerned that all victims and witnesses should receive the best treatment possible from the criminal justice system and that there should be appropriate provision for those with particular needs. In June 1998 the Government published for consultation the report of the Working Group on Vulnerable or Intimidated Witnesses Speaking up for Justice. The report contained 78 recommendations aimed at improving the treatment of vulnerable or intimidated witnesses from the initial investigation stage through to trial and beyond. This included victims of rape, sexual assault and domestic violence. The Government published the implementation plan Action for Justice in November 1999. Those recommendations requiring legislation have now been addressed by Part II of the Youth Justice and Criminal Evidence Act, and implementation of all the recommendations is being overseen by an inter-departmental Steering Group. The majority of these measures will be implemented in the Crown Court by the end of 2000. The Group will take into account the views of survivors and will consult with interested organisations as the work progresses. Courts should bear in mind the principles and approach of Speaking up for Justice in all their dealings with victims and witnesses.
2b.i.2 Those involved in the practical management of domestic violence cases should ensure that the best use is made of the available accommodation in terms of reducing stress for the witnesses. There are separate waiting areas for witnesses in most Crown Court Centres, and this is a requirement in the design of new court buildings. The Court Service is also currently developing a model layout for all new courts. This will include provision for a segregated hearing suite and a dedicated area for children. In the older buildings where it is not possible to provide separate areas, the prosecution or defence can ask the court administration if special arrangements can be made. Child witnesses must be brought into court through an entrance which is not used by the general public and must be kept away from them while waiting to go into court.
2b.i.3 In the civil courts, if the applicant (survivor) informs court staff of concerns about coming into contact with an alleged abuser, the staff should do everything they practically can to make sure the parties do not come into contact. Great care must be given to protecting applicants, particularly for example, where proceedings might otherwise disclose the address of the victim and so put them in danger. Similarly, if notice is given and accommodation at the court allows, courts should seek to provide separate children’s waiting rooms. (Such provision will usually be the case, though some courts are at present unable to provide supervision for this accommodation.)
2b.i.4 Women who come to court to seek an order against a domestic violence perpetrator, or as witnesses in criminal proceedings, should be able to do so without their experience at court adding to their worries. The Courts Charter recognises the needs of those who may feel vulnerable or apprehensive about appearing in court. The special booklet that has been prepared for witnesses in the Crown Court (Witness in Court) should be made readily available, and the important role that the Victim Support Witness Service has here in offering support to those who need it, as well as other voluntary sector organisations, should be recognised and facilitated.
2b.i.5 The government is also involved in preparing new guidance relating to child contact in domestic violence cases. This will stress the importance of victim's safety when including it with other priorities such as the needs of children.
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Leeds Domestic Violence Cluster Courts Leeds Magistrates Court in partnership with other criminal justice, local authority and voluntary organisations have initiated a pilot scheme whereby all people charged with offences related to domestic violence have their cases dealt with in a dedicated court sitting. This ensures that information relevant to the victim's interests and safety is available to the prosecution and magistrates, and that support services are mobilised for victims. The pilot has been developed in line with the new government "Narey Measures" which require defendants to make their first appearance in court very soon after being charged. It also involves ongoing shared training across all partner organisations with an evaluation underway by Huddersfield University. Contact: Louise Hackett Leeds Inter Agency Project Phone: 0113 234 9090 |
ii. The Crown Prosecution Service
2b.ii.1 CPS staff should have regard in all their dealings with cases involving domestic violence to the Service’s 1995 public statement of policy. CPS officials are currently reviewing the statement which will be re-published in Spring 2000.
2b.ii.2 The CPS Inspectorate published in May 1998 a report on the handling of cases involving domestic violence. This found that the policy was for the most part being followed. CPS staff should continue to be fully aware of the need to treat cases of domestic violence with special care and to be sensitive to the difficult choices faced by people experiencing domestic violence. They should also consider the practical recommendations which the report made about more effective partnership working with the police. This includes the importance of the quality and completeness of police files and the need to ensure that all relevant background information is submitted.
2b.ii.3 When deciding whether to prosecute, all Crown Prosecutors must base their decision on the two tests set out in the publicly available code for crown prosecutors. First they must satisfy themselves that there is enough evidence to provide a 'realistic prospect of a conviction against each defendant on each charge, meaning that a jury or bench of magistrates, properly directed in accordance with the law, is more likely than not to convict the defendant of the charge alleged'. Where a case passes this evidential test, prosecutors must then test if a prosecution is needed in the public interest. A prosecution will usually take place unless there are public interest factors tending against prosecution which clearly outweigh those tending in favour.
2b.ii.4 In cases where a victim withdraws her testimony, Crown Prosecutors should be sensitive to the motives that may have informed this decision. The CPS policy statement outlines the special procedures to be followed in these circumstances. These include obtaining, from the police, a statement of withdrawal confirming the victim's wishes. This must give a full explanation of the reasons for withdrawal, information on whether there has been any element of duress, and other information including whether the original complaint was true or false.. If Crown Prosecutors do not receive sufficient information from the police to consider these issues properly, they should request it.
2b.ii.6 When the victim withdraws the compliant there will often follow a complex decision about whether a prosecution is still required. The Crown Prosecutor will need to decide whether it is necessary to call the victim as a witness in order to prove the case. If not, the case may continue if a prosecution is needed in the public interest. The Crown Prosecutor should always think very carefully about the interests of the victim when deciding where the public interest lies. However, they must also think about the wider interests of the public and not just the interests of an individual. Clearly the interests of the victim are important; they cannot, however, be the final word on the subject of prosecution.
2b.ii.7 If the victim withdraws the complaint, it may not be necessary to prosecute in the public interest. Factors influencing the decision include:
the chances of the abuser offending again
the current status of the victims relationship with the abuser
the effect on that relationship of continuing when the prosecution is against the victim's wishes
Crown Prosecutors should ensure that they have sufficient information from the police to consider these issues properly, including the victims views on the potential risk to her safety.
2b.ii.8 In cases where it may be necessary to prosecute in the public interest in spite of the victim's wishes, Crown Prosecutors need to take into account factors that include:
the history of the relationship, particularly if there has been any other violence in the past
the seriousness of the offence
the victim's injuries
if the abuser has used a weapon
if the abuser has made any threats since the attack
if the abuser has planned the attack
the effect on any children living in the household
2b.ii.7 Crown Prosecutors should consider in addition whether it would be appropriate to use a victim's statement as evidence under Section 23 of the Criminal Justice Act 1988. In these cases the prosecution must prove beyond reasonable doubt that the maker of the statement 'does not give oral evidence through fear or because he (she) is kept out of the way'. The court must then decide whether the statement ought to be used in the interests of justice. Where the victim is the only witness to the offence it may be difficult for Crown Prosecutors to satisfy the court that justice is being served when there is no opportunity for the defendant to be cross examined.
2b.ii.8 The decision whether to compel a victim of domestic violence to attend court against their wishes requires great sensitivity and discretion. In many cases of withdrawal, compulsion will not be appropriate. A compelled witness is likely to become hostile to the prosecution and either refuse to testify, or give an account that undermines the prosecution case. It is important that Crown Prosecutors are able to identify those cases in which compulsion is appropriate. In order to do so, they should ensure that their decisions are informed by the views of the police on the victim's likely reaction to compulsion, including her views on the possible risks to her safety.
2b.ii.9 The Crown Prosecutor should take all these considerations into account before deciding to abandon a prosecution.
iii. The Police
2b.iii.1 Home Office Circular 60/1990 gave detailed guidance to the police on suggested best practice in addressing domestic violence. Home Office officials are currently working with ACPO on a revised version to reflect changes in relevant legislation, the findings of recent research and latest thinking on policy and practice. All forces should have regard to the recommendations in the current Circular and in the revised version when it becomes available.
2b.iii.2 Section 17 of the Crime and Disorder Act 1998 requires the police (in partnership with local authorities) to exercise all their functions with regard to the effect on and the need to prevent crime and disorder in their areas. Tackling domestic violence should be an integral part of this work. The Home Secretary and Home Office Ministers have drawn particular attention to domestic violence in speeches and in specific letters, such as the letter from the Deputy Home Secretary Paul Boateng, to all Chief Constables and Local Authority Chief Executives of 11 November 1998. The Government expects the crime and disorder audits required under the Crime and Disorder Act to identify the local level of domestic violence and for the police to work with partners to develop a strategy to address it as part of their over-all crime reduction strategy for the area. It recommends police forces might consider setting a local target for domestic violence in the context of their Key Performance Indicator on repeat victimisation, of which domestic violence is often a classic example.
2b.iii.3 All forces in England and Wales now have policies on domestic violence, and the majority have specialised domestic violence units (DVUs) or domestic violence officers (DVOs), or equivalent types of officers based within other types of specialist community focused teams, such as "community safety units". However, a recent study (Plotnikoff and Woolfson, 1998) showed that communication between DVOs and other police officers was not always good. It found that DVOs could feel marginalised and some believed that domestic violence was regarded as having a low priority within their forces.
2b.iii.4 It is essential that the work of DVOs and DVUs is properly understood and supported by the rest of the force. There must be no suggestion that dealing with domestic violence is in any sense "second-class" police work. It is also important for such units and officers to maintain close links with other units within Forces that deal with related issues such as "child protection" and with other relevant local agencies. To address domestic violence effectively and provide real help for those who experience it the issue must be addressed holistically. This requires the different agencies to work together. Survivors of domestic violence will also benefit if, when they report an incident, police officers are able to supply information about local voluntary sector support groups, such as Women's Aid and Victim Support. The Women’s Aid Federation England produces The Gold Book, a useful U.K-wide directory of domestic violence refuge and helpline services.
2b.iii.5 Forces must be aware of the scale of domestic violence in their areas, so that they know the extent of the problem with which they have to deal and the resources devoted to it and can measure the effectiveness of their strategies. Part 1 of this guidance refers to the requirement for forces to make returns of reported domestic violence incidents to Her Majesty's Inspectorate of Constabulary. Forces may wish to consider if it would be helpful to build on this exercise and in particular how it should be linked with any existing data collection they or any other domestic violence forum members undertake, especially if their force uses a broader definition of domestic violence.
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Good practice example: |
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Killingbeck Repeat Victimisation Model The West Yorkshire police have piloted, in one division, a graded response model to domestic violence that has reduced repeat victimisation. The three-stage intervention model is directed at both perpetrators and victims, incorporating an inter-agency approach. The option of police officers taking ‘No further action’ has been eliminated. Instead, a series of interventions are implemented depending on the number of previous police attendances. The project is aimed at female victims of domestic violence and male perpetrators. The Home Office is currently funding the expansion of this project across the Force area under the Crime Reduction Programme, to include victims of homophobic and racist crime. An evaluation of the first 12 months of the project was carried out by the Research Centre on Violence, Abuse and Gender Relations, Leeds Metropolitan University and is available from the Home Office (Policing and Reducing Crime Unit). Further information on the evaluation can be obtained from: Jalna Hanmer/Sue Griffiths, Phone: 0113 283 6710 Email: violence@lmu.ac.uk For information on the operation of the project contact : Community Safety and Race Relations Department Phone: 01924 292 345 |
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Good practice example: |
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Derbyshire Constabulary Training Programmes Derbyshire Constabulary have run a five day training for trainers course, as well training for all their officers with a two day course focusing on raising awareness and practical policing issues. Contact: Lynn Harris Phone: 01332 222 006 |
iv The Probation Service
2b.iv.1 Addressing domestic violence is central to the Probation Service core functions of crime reduction, public protection and victim contact. Domestic violence is a criminal and social problem so serious and widespread that tackling it effectively would have a major impact on violent crime as well as the safety of current and potential future victims.
2b.iv. W6 9ZE
Phone: 020 8563 7983
Fax: 020 8741 4383
2c Local government departments
i. General
2c.i.1 The Crime and Disorder Act requires local authorities, and the police, to join with other agencies in local crime reduction partnerships. As described above, the Government expects these partnerships to identify the level of domestic violence in their area and include a strategy to tackle it in their over-all crime reduction strategy.
2c.i.2 Section 17 of the Act requires local authorities to exercise all their functions with regard to the effect on and the need to prevent crime and disorder in their areas. Authorities should not overlook the need to take action against domestic violence and to help its survivors within their own responsibilities as service providers. Community safety teams, where they exist, may be an appropriate body within local authorities to act as a focus for this work and to take it forward. Involvement with local inter-agency domestic violence fora is discussed in Part 3 below.
2c.i.3 Every authority should publish a clear policy on domestic violence, which is understood and complied with by all its staff. This policy should:
cover the detail of good practice expected from council staff;
promote good practice in individual departments of the authority;
provide a framework of co-ordinated and measurable responses to domestic violence by all key departments, including social services, education, housing, and youth and leisure services;
include a clear emphasis on effective monitoring and evaluation, and ensure that staff receive appropriate training
2c.i.4 Local authorities will also need to consider their services to domestic violence survivors within the context of the new best value regime and their duty to promote social, economic and environmental well-being. Voluntary sector groups such as Women's Aid can act as a valuable resource in this respect, providing expertise and serving in an independent advocacy role for survivors.
2c.i.5 These issues are discussed in more detail in the 1998 Local Government Association briefing paper Domestic violence and child abuse: policy and practice issues for local authorities and other agencies. Information on the response of 127 local authorities to domestic violence is contained in Tackling domestic violence, published by the Women’s Unit in November 1998.
Good practice example: |
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Leicester City Council Corporate Policy on Domestic Violence Leicester City Council have a comprehensive Policy to support survivors of domestic violence to ensure that a consistent and co-ordinated service is provided. We recognise that the needs of survivors are diverse. The policy highlights how to meet the needs of excluded and marginalised groups including minority ethnic communities, disabled people, older women and lesbian and gay people. Contact:Hasu Joshi Corporate Equalities Team Phone: 0161 254 9922 Email: joshh001@leicester.gov.uk |
Good practice example: |
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Nottingham City Council Corporate Domestic Violence Policy Through it's Corporate Domestic Violence Policy, Nottingham City Council brings together the good practice identified in number of local plans including the Health Improvement Plan, Community Safety Plan, Area Child Protection Plan and works closely with the Nottinghamshire Domestic Violence Forum. Contact:Jane Lewis Domestic Violence Policy Officer Phone: 0115 915 3048 |
ii. Education, and Youth and Leisure Services
2c.ii.1 Children and young people cannot learn or develop effectively if they are concerned or frightened about what might be happening at home. They have a right to expect education and leisure services to provide a safe and secure environment.
2c.ii.2 Women of all ages can benefit from participation in arts, sports and general leisure activities. These can increase confidence and improve self-regard. Opportunities to take part in these activities should be a key element in the range of services offered to everyone affected by domestic violence.
2c.ii.3 Educational work can raise levels of awareness about domestic violence and support children and young people in accessing help. It can also seek to prevent domestic violence in the future by helping young people respect themselves and one another sufficiently to develop non-abusive relationships.
2c.ii.4 Informal education settings such as youth clubs can provide many opportunities for promoting awareness of domestic violence amongst younger people. It is important to give young people an opportunity to explore these issues both to give those who have witnessed domestic violence an opportunity to access support services, and to educate those young people who may be victims, witnesses or potential perpetrators in the future.
2c.ii.5 Even when they are not being abused themselves - and child abuse and domestic violence may often be linked - children can suffer psychological damage if they know that a parent or step-parent is being abused. Effective information sharing between organisations in this regard is essential in ensuring that children and young people in this position can be properly identified and supported as appropriate.
2c.ii.6 Teachers, auxiliary staff, educational welfare officers and others in regular contact with children and young people are well placed to notice whether a child might be affected by violence in the home. They should not however intervene directly in situations for which they do not have the appropriate professional qualifications and experience. Where they believe that they have identified pupils who may be living in a home where there is violence they should make their concern known to the relevant authority (according to their internal child protection policy).
Good practice example: |
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Hackney’s RESPECT pack Hackney’s RESPECT pack is an educational curriculum for secondary schools promoting positive and non-violent relationships and challenging all forms of domestic and sexual violence. Contact: Rachel Morley Community Psychology Department Phone: 020 7301 3456 |
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London Borough of Richmond Leaflet for Children The London Borough of Richmond has developed a leaflet for children under 11 on domestic violence, produced with the direct involvement of children. Contact:Juliette Taylor Room 301C Phone: 020 8891 7155 Email: j.taylor@richmond.gov.uk |
iii. Housing
2c.iii.1 Local authority homelessness and housing allocation officers have an important role in giving women who are escaping domestic violence access to alternative accommodation. Officers should have a detailed knowledge of housing legislation and statutory guidance and how this applies to people fleeing domestic violence. A knowledge of what information and help is available to domestic violence survivors is also essential. Local Women’s Aid Groups can be useful sources of advice. The Women’s Aid Federation England produces The Gold Book, a U.K-wide directory of domestic violence refuge and helpline services. Welsh Women's Aid can provide specialist information on refuge, outreach and other support services throughout Wales.
2c.iii.2 Local authority housing policies should provide that:
psychological abuse is recognised as potentially leading to statutory homelessness where it would not be reasonable for someone to continue to live at home
(as required by law) applicants who are homeless because of domestic violence and who apply to an authority in an area where they do not have a local connection must not be referred back to the authority in their home area (or any other area) if they would be at risk of domestic violence there
women fleeing domestic violence who do not have dependent children and/or are not pregnant may be vulnerable and have a priority need for accommodation
women fleeing domestic violence who decline to return to their home under the protection of a non-molestation order or other court order should not be considered to be either not homeless or intentionally homeless on the basis that it is safe for them to return
positive consideration is given to accepting the referral of homelessness cases from other authorities where the applicant needs to move away from the home area to escape domestic violence
eviction action should be taken against local authority tenants whose partner has fled the home because of domestic violence perpetrated by the tenant
sympathetic treatment is given to victims of domestic violence, for example, where there are rent arrears or a need to fit new locks.
2c.iii.3 In May 1999 the Department of the Environment, Transport and the Regions, the Women’s Unit and the Department of Health published guidance to assist local authorities and registered social landlords in developing and implementing housing policies to deal with relationship breakdown. Relationship Breakdown: A Guide for Social Landlords provides up-to-date information about those aspects of housing and family law that affect the rights and responsibilities of both landlords and tenants, including the issues raised when the relationship breakdown is caused by violence.
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Good practice example |
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Cardiff City Council Housing Policy Cardiff County Council Housing Department have recently developed a domestic violence policy and procedures, in partnership with their local Women's Aid groups and Welsh Women's Aid. The strategy is closely based on the DETR paper Relationship Breakdown: A Guide for Social Landlords. Contact:Ray Denyer/Ann Barnett Gabalfa Community Housing Office Phone: 01222 614 821 |
2c.iv.1 As the lead agency in relation to child protection, social services departments need to pay particular attention to domestic violence. Domestic violence can be an important indicator of child abuse and vice versa: social workers should always look for one when the other is present, so that both abused adults and children can be made safe. In these cases, staff will need to be mindful that victims may be reluctant to disclose domestic violence where they have anxieties that social workers will be pre-occupied with child protection, or be judgmental. The potential presence of domestic violence is also relevant to the responsibilities of social services departments in relation to older people and people with disabilities, drug and alcohol dependency and mental health problems .
2c.iv.2 Against this background, local Children's Services Plans and Community Care Plans should include a recognition of domestic violence as an issue to be addressed. Each domestic violence forum and Area Child Protection Committee should have clearly defined links, which should include cross membership, and/or identifying and working together on areas of common interest. The domestic violence forum and Area child Protection Committee should consider jointly contributing, in the context of the Children's Services Plan, to an assessment of the incidence of children caught up in domestic violence, their needs, the adequacy of local arrangements to met those needs and the implications for local services. Domestic violence (Hackney Interagency Guidelines) published in 1998 by the Hackney Domestic Violence Forum is a useful source of more information.
2c.iv.3 Social workers should in addition bear in mind that individual cases with which they deal may include a number of linked issues that each require attention. While, for example, there is no proven causal link between alcohol misuse and domestic violence, incidents and relationships in which domestic violence features are often associated with alcohol misuse by one or both parties.
2c.iv.4 Social services departments should not see domestic violence as just another discrete risk from which they must protect children and other vulnerable people. A holistic approach, including the provision of family support services and other measures to enable all the abused members of the family to make themselves safe may be a more effective intervention. This will include support, where appropriate, after the violence has ended, in terms of helping victims re-build their lives. Departments should also recognise that the involvement of domestic violence experts, such as experienced workers within the voluntary sector, can lead to better decision making. They can help ensure a comprehensive assessment of needs, risks, and protective steps which can be taken.
Good practice example: |
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Leeds Social Services Domestic Violence Policy Leeds Social Services Department has issued policy and guidance notes on dealing with women experiencing violence from known men. These notes emphasise principles that aim to maximise abused women’s control over their situation. Contact: Pat Case Phone: 0113 247 4231 |
Good practice example: |
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Herefordshire - an integrated approach to domestic violence and child protection Herefordshire Domestic Violence Forum has developed close links with its local Area Child Protection Committee to ensure an integrated approach by local agencies to domestic violence, and to child protection. It has recently produced a multi-agency protocol which has been integrated in to the Children's Services Plan and into multi-agency guidelines on how agencies in Herefordshire will deal with domestic violence. Contact:Jan Frances Phone: 01432 356 146 Email: hwa@hwa.kc3ltd.co.uk |
2d. The Health Service
2d.1 Health authorities are under a statutory duty to improve the health of their populations and to do so in partnership with NHS agencies, local authorities and others, including the voluntary sector. The local Health Improvement Programme sets out the strategic framework for achieving this and for modernising health services. Domestic violence as a key public health issue can be addressed within this HImP process.
2d.2 The British Medical Association has reported (BMA 1998) that domestic violence has a substantial impact on the health and welfare of adults and children, with the two most important health consequences being physical injury and psychological effects. The Chief Medical Officer in his Annual Report of 1997 highlighted the implications of domestic violence for the NHS. The British Medical Association as well as a number of the Royal Colleges have also reported psychological effects.
2d.3 Women experiencing domestic violence may seek medical help for the consequences of violence; they may also be in routine contact with the health service for reasons unrelated to the violence, eg in pregnancy. In one study (Dobash and Dobash 1984) 80% of women sought help from a health professional at least once while they were in a violent relationship. Health practitioners should all be aware that they can be the first port of call for many survivors. Mullender and Hague (2000) noted that many women did not mind being asked about domestic violence, and expected the health services to take an interest in understanding and acting on these experiences.
2d.4 It is important that awareness of domestic violence is not restricted to certain categories of health service staff. Domestic violence survivors are most likely to attend Accident and Emergency Departments, and to see GPs and midwives. They may however also be seen by nurses, gynecologists, obstetricians, psychiatrists and others. Health visitors can have a crucial role in terms of identifying domestic violence in the home. Depending on their role, school nurses may encounter disclosures of domestic violence during their work with children who are in families where there is domestic abuse. The effective sharing of information between service providers is essential here in ensuring that any links between violent partners and their impact on children is quickly identified and tackled.
2d.5 People will not always wish to reveal to health staff that their injuries are due to domestic violence, but health professionals should always make it possible for patients to talk about domestic violence if they wish to. In a 1983 study (Hopayian and others), 89% of women in refuges had consulted their GP but nearly half had concealed their experience of domestic violence. This was either because they were ashamed or afraid their partner would find out or because of the hurried, unsympathetic or even hostile attitude of the GP. The latter reason cannot be justified: health service staff must deal with all patients in a professional, positive and responsive manner.
2d.6 Health staff should be trained to:
recognise when abuse is occurring and be aware of the wide range of associated issues such as possible reluctance by victims to disclose
provide sensitive treatment for physical, emotional and psychological injuries including mental health problems brought on as a result of the abuse
offer support aimed at preventing further injuries
document the situation, to include taking photographs
assist patients with information about the resources, help and options available to them
aim to ensure confidentiality and privacy when talking and listening
safeguard clothing or other evidence that may be required for forensic evidence
2d.7 A detailed guidance manual on domestic violence is being prepared by the Department of Health for all health care professionals based on existing national guidelines produced by a number of the Royal Colleges.
Good practice example: |
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Camden Partnership Work Camden Council Equalities Unit and Camden Multi-Agency Domestic Violence Forum have worked together with Camden and Islington Health Authority in developing a pilot project on domestic violence with the local Health Authority, Camden and Islington Community NHS Trust, Royal Free Trust and the London School of Hygiene and Tropical Medicine. Domestic violence guidelines for health professionals including a detailed training pack have been developed and are available from the address given below. Contact: Judy Watson 020 7413 6014 |
Good practice example: |
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Leicestershire Health Professional's Guide Leicestershire Health has produced a practical guide for Health Professionals across the local NHS community. It includes statistics on local prevalence, how to recognise abuse, questions to ask, and contacts for local support services. Contact: Carole Devaney Phone: 0116 258 8933 |
3. Multi-agency working
Introduction
3.1 Effective work to address domestic violence has increasingly been carried out within the framework of specific multi-agency domestic violence fora. No two such fora are the same. By their nature they must respond to local needs and conditions. In discussing their operation, this guidance does not therefore attempt to set out a "blueprint" for the ideal. What it does is to identify some of the key issues which many fora have already encountered, and draw attention to some of the ways in which those issues have been successfully addressed.
3.2 A number of more detailed practical "handbooks" on setting up and running multi-agency initiatives against domestic violence are available. They include Hague and Malos 1996, COSLA 1996 and LGA 1998. More research is listed in section 4.
3.3 Those working in multi-agency fora should remember that many of the issues they face are being, or will have been, tackled by other fora. The sharing of learning and good practice between fora brings many benefits, and it is important that fora across the country maintain contact. Existing fora are listed in the Women's Aid Federation England Directory of Domestic Violence Fora (England and Wales) , to be published simultaneously with this guidance. The websites quoted in section 4 should also serve as useful sources of information.
3.4 Fora should also integrate their work and approaches carefully with other inter-agency groups in their area, particularly the crime and disorder reduction partnerships set up under the Crime and Disorder Act and Area Child Protection Committees. Where a forum does not exist, agencies should bear in mind that the Government expects to see effective partnership work to address domestic violence nationwide. In the absence of a forum, addressing domestic violence will be the responsibility of the local statutory partnership. The partnership will need to ensure that the issue is specifically and practically addressed and that key non-statutory organisations, such as Women's Aid and Victim Support are consulted and involved. They may also benefit from working closely with other partnership mechanisms which local authorities and health authorities are being encouraged to set up in relation to health, housing and care issues.
Basis and purpose of multi-agency working
3.5 There has been a great increase in multi-agency working in recent years, partly as a result of Government encouragement such as the 1995 Circular which the present guidance replaces. Research suggests, however, that this expansion brings the danger that inter-agency working might be seen as an end in itself and not a means to an end.
3.6 To help avoid this danger many multi-agency fora adopt guiding principles and aims and objectives to underpin their work. These can usefully be based on a clear mission statement.
Example: Typical mission statement for a domestic violence forum To achieve the widespread acceptance that domestic violence is unacceptable, to ensure support is given to people experiencing domestic violence and treatment for perpetrators is readily available and accessible. |
3.6 Statements like this are important. It is equally important, though, that any forum has clearly stated aims, objectives and action plans against which it can be easily evaluated. Without this there is a risk that the multi-agency forum could become a "smokescreen" behind which some agencies might be able to hide - for example, by saying that their response to domestic violence was to participate in the forum. The purpose of a forum is to improve the over-all approach to addressing domestic violence and the level of service to survivors. Agencies co-operating in the forum must have actual domestic violence policies and practices which they can co-ordinate.
Definitions of domestic violence
3.7 A common problem which many fora have faced is in agreeing a definition of domestic violence. Different agencies may use different definitions for their own particular purposes - often for good reasons. This need not necessarily change because of their participation in a forum. For effective multi- agency working, however, they need to agree a definition for use in that context, in order to give clarity and purpose to the forum’s endeavor. Different perceptions of and views about domestic violence should be respected and not allowed to hinder practical measures to reduce its occurrence and help its survivors.
3.8 Para 1.10 above gives the definition now used for police force returns to HM Inspectorate of Constabulary. Fora may find this helpful to consider and are free to adopt it, if they wish, but are under no obligation to do so. What is important is for the forum to agree a definition acceptable to all participants for the purposes of the forum. There are numerous examples across the country, and where problems arise fora should seek advice from others about how they have reached agreement.
Good Practice Example: |
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Greater London Domestic Violence Project Definition "Domestic violence is essentially about the misuse of power and the exercise of control by one adult person, usually a man, over another adult, usually a woman, within the context of an intimate relationship. Such abuse may manifest itself in a variety of ways including physical violence, emotional or psychological abuse, sexual violence and abuse, financial control and abuse and the imposition of social isolation or movement deprivation." Contact: Davina James-Hanman GLDVP Phone: 020 7447 6243 |
Example taken from Hague & Malos 1996, p45 "Domestic violence is defined by the Forum as the emotional, physical, sexual or psychological abuse of a person by their partner, family member or someone with whom there is, or has been, a relationship." Note: Many forums follow a gender-neutral statement like this with a statement that domestic violence is predominantly directed from men against women. |
Leadership of fora
3.9 Under the Crime and Disorder Act 1998, responsibility for crime and disorder reduction partnerships lies jointly with the police and local authority. While domestic violence fora are likely to be distinct from other partnerships made under the act, it is likely that many fora will also have the police or local authority in the lead.
3.10 Research (Hague, Malos and Dear 1996) has shown that police-led fora work best where:
the police do not chair all meetings or control agendas
the group does not meet in police stations
there are dedicated Domestic Violence Units or Domestic Violence Officers
the voluntary sector is fully involved
3.11 Though in many cases impetus for a forum came from the voluntary sector, marginalisation of the voluntary sector is always a risk that the statutory agencies must avoid. They need to work in full partnership with independent women's services, such as Women's Aid, to ensure their effective participation in the work of the forum and the proper use of their day-to-day expertise of working with survivors and knowledge of the impact of local policies on service users. In some areas the forum is chaired by a refuge with administrative support from the local authority.
Good practice example |
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Coventry Multi-Agency Domestic Violence Focus Group Coventry multi-agency domestic violence focus group is chaired by a council officer with the vice chair shared by three voluntary sector service providers. There are clear terms of reference, sub groups and a five year work programme. Contact: Surindar Nagra Corporate Policy Team Phone: 024 76831078 |
The work of fora
3.12 In general, fora engage in five main areas of work:
co-ordinating and facilitating the development of local agency responses and services
improving the practice of agencies, and their service delivery, for example through training
supporting projects to assist domestic violence survivors, and setting up new ones
awareness-raising among the general public
preventative measures such as perpetrators’ programmes and work in schools
These areas are discussed in more detail in Hague and Malos 1996, pp. 18–21, and in Hague, Malos and Dear, 1996, pp. 41-51.
3.13 Fora should seek to ensure that the following, at the very least, are available in their area:
forum’s statement of policy
information for survivors of domestic violence
resource pack, including detailed guidance, for service deliverers
training for service deliverers in meeting the needs of victims
protocol on information sharing between organisations
3.14 Fora should consider whether they wish to extend their work to cover wider issues of women’s safety and violence against women. These too benefit from a multi-agency approach and if not specifically within the remit of a local forum will need attention from the local crime reduction partnership. Whatever the work fora determine to cover, there should be clear aims and objectives, with measurable outcomes, and the work should be subject to monitoring and regular evaluation.
Participation
3.15 The statutory bodies to which this guidance is addressed should seek to ensure their own involvement, and encourage the full and effective involvement of the local voluntary sector.
3.16 Relevant bodies include:
Women’s Aid and other refuges, helplines, advocacy, support and outreach services
specialist domestic violence services including those for women and children from ethnic minorities
Rape Crisis Centres and other rape and sexual assault services
child contact centres
Victim Support
community organisations, including groups representing survivors of domestic violence
3.17 Fora should work closely with Area Child Protection Committees and seek the involvement of judges, magistrates and local members of the legal profession. Links with ACPC should be clearly defined, and include the possibility of cross membership and joint working in areas of common interest. Involvement of the private sector may also help in raising awareness in the workplace and with customers and for possible sponsorship of specific initiatives.
3.18 There may be a number of other organisations locally with a direct or indirect interest in domestic violence. These could include Law Centres, Citizens’ Advice Bureaux, Relate, Age Concern, community centres, solicitors who specialise in domestic violence, lesbian/gay/bisexual groups and disability groups. While they may not wish to participate regularly in the forum, they should be kept in touch with its work and given the opportunity to take part in particular events or initiatives.
3.19 It is important that the forum should not become unwieldy. Where an increase in participation risks this, the establishment of sub-groups can be a useful remedy.
3.20 The voluntary sector is subject to different constraints, in terms both of time and of resources, from the statutory and private sectors. This may affect the availability of their representatives for forum meetings and their participation in forum initiatives. The statutory agencies should recognise this and give such support as possible or make special arrangements for meetings and other forms of contact, such as by telephone.
Appropriate representatives and their role
3.21 The people best suited to discuss services for people experiencing domestic violence are survivors themselves, whose views are often relayed via those who provide those services from day to day and who should have direct knowledge of survivors’ needs. It is important that this work is backed up by senior managers and policy makers who are not only aware of the needs of service users and determined to address these, but also supportive of staff on the ground.
3.22 Fora must ensure that both groups are fully engaged. Some have managed to ensure that senior policy makers and practitioners are represented at the one group. If senior managers and policy makers are not themselves personally involved in forum meetings they should ensure that practitioners who attend the forum
have the full support and commitment of their managers
are able to make decisions on behalf of their agency or have access to those who can
have good communications with policy makers (regular meetings within agencies or high-level inter-agency conferences may help to facilitate this)
have this work recognised as a proper part of their responsibilities (inclusion in formal job descriptions may be helpful)
Employment of staff by fora
3.23 Hague, Malos and Dear (1996 pp.36) found that "the employment of a co-ordinator or a development worker was of key importance in progressing inter-agency domestic violence work". Interviewees said that co-ordinators helped give fora presence, focus and direction, often by working "behind the scenes". They noted that the co-ordinator’s role should be to facilitate and support the project rather than to lead it; and pointed out that the employment of a co-ordinator alone, without administrative support, was often inefficient.
3.24 Fora should seek where possible to make use of such co-ordinators. If the forum is formally constituted and incorporated as a distinct body, it can directly employ a co-ordinator; otherwise, one of the member agencies can act as the person’s employer. Clear terms of reference, policy guidelines and arrangements for reporting to the forum will be important. Other models of fora can also work well. Co-ordinators may for example, undertake the work as part of their duties within other organisations. They could be community safety officers, Probation Service officers, police officers, or Women's Aid workers. Lines of accountability will again be very important.
Information sharing
3.25 Effective information sharing is key to successful partnership working. Fora should consider the drawing up of protocols for this purpose or the adaptation and use of ones that exist already.
3.26 Agencies within fora should note section 115 of the Crime and Disorder Act 1998. This provides that where it is necessary or expedient for the purposes of any provision of the Act any person, including a statutory agency, can disclose information to the police, local authority, health authority or Probation Service committee. (The police already have a common law power to disclose information for the prevention and detection of crime.) This may be especially relevant where domestic violence is identified as a priority in the local crime and disorder audits required under the Act and is being addressed as part of the resultant strategy.
3.27 The section 115 provision is a power not a duty. It does not over-ride existing controls on the use of personal information such as the common law duties on confidentiality and data protection legislation. Relevant guidance on information sharing is given in the Home Office’s Guidance on Statutory Crime and Disorder Partnerships (Home Office, 1998), and the Data Protection Registrar's Guidance on Crime and Disorder Partnerships under the Data Protection Act (1998).
3.28 Sharing of de-personalised information between domestic violence service providers (how many calls they receive, how many they deal with, how many they refer on, etc) should make it possible to identify gaps in service provision. Agencies will need to ensure that the data collected is comparable, hence the need for an agreed definition of domestic violence.
3.29 It may also be possible to develop systems which can track individual cases in order to show the different agencies people are approaching and to help ensure a coherent, consistent, properly co-ordinated and comprehensive approach to their needs. In so doing, however, agencies must respect the confidentiality of service users at all times and the paramount importance of maintaining their safety.
Good practice example |
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Newham Monitoring System As part of the Newham Domestic Violence Strategy, Newham Domestic Violence Forum has set up a central monitoring system for domestic violence. This provides information about the levels of domestic violence in the borough and tracks the numbers of contacts different women are making with the various services. It aims to prevent the double counting of women who contact more than one service and identify gaps in provision. Contact: Claire Phoenix 020 8534 4545 ext. 30112 |
Monitoring and evaluation
3.30 Monitoring and evaluation of multi-agency domestic violence fora is essential to ensure that fora are actually improving the safety of abused women and their children. Hague (2000) noted that uncritical adherence to the multi-agency approach had risks because multi-agency fora may not necessarily benefit abused women and their children. Fora may simply become non productive diversions for the agencies involved. They can use up considerable resources and energy without actually achieving anything (the time and salaries of participating officers can be very expensive), and there is the danger that multi-agency initiatives may divert attention away from the provision of support, refuge and outreach services.
3.31 The success of multi-agency initiatives in improving the safety of abused women and children, should be measured by using evaluative criteria / performance indicators. These criteria must be measurable and relate to concrete, observable, ongoing improvements. The use of evaluative criteria is in its infancy but Hague (2000) suggested that evaluative criteria could include:
Improvements in safety for abused women and their children;
Improvements in take-up and delivery of services;
Improvements in service provision;
Concrete changes in policy and practice;
Involvement with and consultation of service users;
Service user satisfaction with initiatives put in place by multi-agency work;
The development and take up of comprehensive domestic violence strategies across the locality.
3.32 The criteria used will ultimately vary depending on the nature of the multi-agency work as this can vary enormously in its goals and hence in its achievements. Suitable criteria will also vary depending on the exact locality because localities are extremely variable in their services and hence in their needs. For example, multi-agency work may seek, and result in, the adoption of supportive, "believing" interview techniques by housing and social services staff. Alternatively it may aim, and result in, enhanced local service provision with additional refuges, support groups, outreach projects, housing provision and telephone help-lines.
3.33 It could also aim, and result in, improved local knowledge about domestic violence, increased awareness of where to go for help, increased use of security alarms, and improved confidentiality in health or social security settings. The criteria for evaluation must ultimately reflect the nature and location of the multi-agency work.
4. Further information
4.1 Websites
The domestic violence data source website is a central access point for a wide range of materials about domestic violence including research projects and links to related sites.
The Women’s Aid Federation England website provides up-to-date information on refuge services throughout the UK and a range of other information including practical and legal help available for survivors, domestic violence fact sheets and briefings on current issues. People experiencing domestic violence can use the service to make contact directly with refuges in their area.
The following website provides general information on Government action against domestic violence, including the Government Living Without Fear Campaign to tackle violence against women, as well as copies of relevant Home Office publications.
4.2 Bibliography
British Medical Association (1998): Domestic Violence: A health care
issue.
Available from: BMA 020 7387 4499
Burton et al (1998) Supporting Women and Changing Men: Lessons from the Domestic Violence Intervention Project, The Policy Press in association with the Joseph Rowntree Foundation
COSLA (1996). Guidance on Preparing and Implementing a Multi-Agency
Strategy to Tackle Violence against Women
Available from: COSLA, Rosebery House, 9 Haymarket Terrace, Edinburgh, EH12
5XZ
Crown Prosecution Service (1995) Domestic Violence - Statement of
Policy
Available from: Crown Prosecution Service, United House, Piccadilly, York,
YO1 9PQ, Phone: 01904 545 400
Crown Prosecution Service (1998) Report on Cases Involving Domestic
Violence
Available from: Crown Prosecution Service, United House, Piccadilly, York,
YO1 9PQ, Phone: 01904 545 400
Data Protection Registrar (1998) Guidance on Crime and Disorder
Partnerships under the Data Protection Act .
Available from: Data Protection Registrar, Wycliffe House Water Lane
Wilmslow Cheshire SK9 5AF, Switchboard 01625 545 700, and also online at:
www.dataprotection.gov.uk/
Department for the Environment, Transport and the Regions, et al (1999)
Relationship Breakdown: a guide for social landlords
Available from: DETR Publications Sales Centre 01709 891 318
Dobash and Dobash (1984) The Nature and Antecedents of Violent Events, British Journal of Criminology 24(3) July pp.269-288
Hague, G. (2000) Reducing Domestic Violence …What works? Multi-agency
fora, PRCU Briefing Note.
Available from Home Office Publications fax 0207 273 4001
Harwin N, Malos E, Hague G (eds) (1999) The Multi-Agency Approach to Domestic Violence; New Opportunities, Old Challenges? London: Whiting and Birch
Hackney Domestic Violence Forum (1998). Domestic Violence (Hackney
interagency guidelines)
Available from: Peter Snow, Community Safety Unit, Christopher Addison
House, 72 Wilton Way, London, E8 1BJ, 020 8356 3186
Hague G, Malos E, Dear W (1996). Multi-Agency Work and Domestic
Violence: a national study of inter-agency initiatives, The Policy
Press, Bristol
Available from: the Policy Press, 0117 973 8797
Hague G and Malos E (1996). Tackling domestic violence: a guide to
developing multi-agency initiatives, The Policy Press, Bristol
Available from: the Policy Press, 0117 973 8797
Hanmer J, Griffiths S, Jerwood D (1999) Arresting Evidence: Domestic
Violence and Repeat Victimisation, Home Office Paper 104.
Available from Home Office Publications fax 020 7273 4001
Hart L (1998). Help for Women and Children Suffering Domestic
Violence: an action guide for Lambeth Domestic Violence Forum, Lambeth
Crime Prevention Trust
Available from: Lambeth Crime Prevention Trust, 020 7733 0101
Home Office (1996) The Victims Charter - A statement of service
standards for victims of crime
Available from Home Office Publications fax 020 7273 4001
Home Office (1997) Witness in Court - A leaflet for witnesses
in court
Available from Home Office Publications fax 020 7273 2635
Home Office (1998) Speaking up for Justice - Report of the Working
Group on vulnerable or intimidated witnesses
Available from Home Office Justice and Victims Unit 020 7273 2959
Home Office (1998) Guidance on Statutory Crime and Disorder
Partnerships
Available from Home Office Publications fax 020 7273 4001
Home Office (1998) Crime and Disorder Act 1998 - Introductory Guide
Available from Home Office Criminal Policy Strategy Unit: 020 7273 2625
Home Office (1999) Action for Justice - The Action Plan on Speaking up
for Justice
Available from the Home Office Justice and Victims Unit: 020 7273 2168
Home Office and Welsh Office (1995) Inter-Agency Circular-
Inter-Agency co-ordination to tackle domestic violence.
Available from Home Office Criminal Policy Strategy Unit: 020 7273 2625
Hopayian 1983 (et al) Battered Women Presenting in General Practice. Journal of Royal College of GP's. Volume 33 pp.506-507
Davina James-Hanman (1999). Enhancing Multi-Agency Work
Available from: GLDVP 020 7447 6243
Liz Kelly et al (1999) Domestic Violence Matters: An evaluation of a
development project. Home Office Research Study 193.
Available from Home Office Publications fax 020 7273 4001
Ruth Lewis and Yolanda Marshall (1998). Progress through Partnership:
domestic violence inter-agency forums in the North East of England.
Department of Social Policy, University of Newcastle upon Tyne.
Available from the Department of Social Policy, University of Newcastle upon
Tyne, 0191 222 6000
LGA (1998). Domestic Violence and Child Abuse: policy and practice
issues for local authorities and other agencies (briefing paper from the
task group on domestic violence and child abuse), LGA Publications.
Available from LGMB Publication Sales, 020 7296 6666
Amy Mina-Coull (1998). It Doesn’t Happen Here? Co-ordinated services
for women experiencing domestic violence in the rural area of North
Shropshire and Oswestry. Stonham Housing Association.
Available from Stonham Housing Association, 0121 643 0084
Mullender, A. and Burton, S. (2000)
Reducing Domestic Violence …What works? Perpetrator programmes,
PRCU Briefing Note.
Available from Home Office Publications fax 0207 273 4001
Mullender, A. and Hague, G. (2000)
Reducing Domestic Violence …What works? Women survivors’ views,
PRCU Briefing Note.
Available from Home Office Publications fax 0207 273 4001
National Association of Probation Officers, Domestic Violence Policy
and Practice Guidance (1998)
Available from: NAPO 020 7223 4887
Plotnikoff J, Woolfson R(1998) Policing Domestic Violence: Effective Organisational Structures. Available from Home Office Publications fax 020 7273 4001
Stanko E et al (1998) Counting the Costs: estimating the impact of domestic violence in the London Borough of Hackney. Crime Concern.
Women's Aid Federation England (1999) The Gold Book - The UK wide
directory of domestic violence refuge and helpline services
Available from the Women's Aid Federation England (see below)
Women's Aid Federation England (due 2000) Directory of Domestic
Violence Multi-Agency Fora (England and Wales)
Available online from the Women's Aid Federation England (see below)
Women’s Unit (1999). Living Without Fear - An Integrated
Approach to Tackling Violence Against Women.
Available to view/download online on the Women's Unit Website:
www.womens-unit.gov.uk/
Women's Unit (1998) Tackling Violence Against Women
Available from the Women's Unit, 020 7273 8880
Victim Support (1995) Treating Victims of Crime - Guidelines for
Health Professionals
Available from: Victim Support National Office Phone: 020 7735 9166, Fax:
020 7582 5712
Victim Support (1996) Supporting Victims of Domestic Violence;
Guidelines
Available from: Victim Support National Office 020 7735 9166
Victim Support (1992) Domestic Violence: Report of a National
Inter-Agency Working Party
Available from: Victim Support National Office 020 7735 9166
4.3 Women's Aid Federation of England Publications
The Women's Aid Federation of England produces a wide range of publications (books, briefing papers, reports) on domestic violence including:
A series of leaflets for survivors on how to get help and their rights under current law
The Gold Book: The UK wide directory of domestic violence refuge and helpline services
Families Without Fear - The Women's Aid National Agenda for Action on Domestic Violence.
Contact: WAFE, PO Box 391, Bristol BS99 7WS. Phone 0117 944 4411.
Wafe@wafe.co.uk,
www.womensaid.org.uk/
4.3 Home Office publications
For further copies of this guidance or copies of the Government Break the Chain leaflet, please write or fax:
Home Office
Marketing and Communications Group
Room 157
50 Queen Anne's Gate
London SW1H 9AT
Fax: 020 7273 2568
Copies can also be viewed on the Home Office website. www.homeoffice.gov.uk/violenceagainstwomen
4.4 Other relevant organisations
Welsh Women's Aid
Cardiff Office
38-48 Crwys Road,
Cardiff,
CF2 4NN
01222 390 874
Refuge
Head Office
2-8 Maltravers St
London WC2R 3EE
020 7395 7700
Victim Support
National Office
Cranmer House
39 Brixton Road
London
SW9 6DZ
020 7735 9166
4.5 Index of good practice examples
Section |
Location |
Example Title |
Statutory Crime and Disorder Reduction Partnerships |
Croydon |
|
Courts and the Court Service |
Leeds |
|
The Police |
West Yorkshire |
|
The Police |
Derby |
|
Probation Service |
London |
|
Local Government Departments |
Leicester |
Leicester City Council Corporate Policy on Domestic Violence |
Local Government Departments |
Nottingham |
|
Education, and Youth and Leisure Services |
London |
|
Education, and Youth and Leisure Services |
London |
|
Housing |
Cardiff |
|
Social Services |
Leeds |
|
Social Services |
Herefordshire |
Herefordshire - an integrated approach to domestic violence and child protection |
Health |
London |
|
Health |
Leicester |
|
Definitions of domestic violence |
London |
|
Leadership of Fora |
Coventry |
|
Information Sharing |
London |
4.6 Acknowledgements
The Home Office would like to thank all those individuals and organisations who have contributed both time and energy to the development of this guidance. In particular the Home Office would like to thank the range of non-governmental organisations and other government departments for their work in the consultation process.
Last update: Last update: 15 May 2008