A Review of Multi-Agency Approaches to Tackling Sex Work/ Prostitution

Transcription

1 Item 5 A Report of the: Community and Adult Services Scrutiny Committee A Review of Multi-Agency Approaches to Tackling Sex Work/ Prostitution March 2012 County Council of The City and County of Cardiff

2 CONTENTS CONTENTS... 2 CHAIR S FOREWORD... 4 TERMS OF REFERENCE... 6 DEFINITIONS... 8 KEY FINDINGS... 9 RECOMMENDATIONS.17 POLICY FRAMEWORK SEX WORK/ PROSTITUTION IN CARDIFF ISSUES FACED BY WOMEN INVOLVED IN SEX WORK/ PROSTITUTION IN CARDIFF DEDICATED SERVICE PROVISION IN CARDIFF GENERIC SERVICE PROVISION IN CARDIFF OTHER APPROACHES TAKEN TO TACKLE SEX WORK/ PROSTITUTION IMPACT OF SEX WORK/ PROSTITUTION ON RESIDENTS AND COMMUNITIES TRAFFICKING INQUIRY METHODOLOGY GLOSSARY BIBLIOGRAPHY

3 FINANCIAL IMPLICATIONS LEGAL IMPLICATIONS COMMITTEE TERMS OF REFERENCE COMMUNITY AND ADULT SERVICES SCRUTINY COMMITTEE MEMBERSHIP APPENDIX A APPENDIX B APPENDIX C

4 CHAIR S FOREWORD When this Inquiry commenced, the members of the task group held a broad and divergent range of opinions and views on the various aspects of sex work/ prostitution; we have ended the Inquiry united in agreement that sex work/ prostitution is undoubtedly damaging to the people involved (including clients) and the residents and communities where the activities associated with it, take place. We are also all agreed that local authorities have a duty to effectively tackle sex work/ prostitution and to play a key role with relevant partner agencies to do so. The topic choice arose from a previous Inquiry by Members of the Community & Adult Services Scrutiny Committee into human trafficking, where the approach to tackling that problem led to recognition of the need to effectively tackle sex work/ prostitution. Along the journey that has culminated in this report, Members heard many disturbing, often harrowing descriptions of life for those involved in sex work/ prostitution. Whilst we recognised that an emotional response to such stories is very human, we understood that it can also cloud judgement and so we maintained an objective approach to the topic, relying upon the evidence, rather than myth, conjecture and prejudice: in doing so we found the path to agreement. Members decided to use the term sex work/prostitution throughout this report in recognition that the use of language in this area is highly contentious. No offence is intended to anyone by using these combined terms and we have followed witnesses lead where they expressed a particular preference for certain language use. The Recommendations in this report have been deliberately chosen to encourage debate to ensure that all relevant agencies can contribute to the development of an agreed strategy and support the operational initiatives 4

5 arising from it. I recognise that some observers may be hoping for more specific recommendations; however, Members are clear that doing so without wider discussions and agreement to strategic direction would prove to be both counter-effective and a poor use of resources. During this Inquiry, Members heard from a wide range of organisations that work with people involved in sex work/ prostitution - I wish to pay tribute to them all for their hard work and thank them for valuable and useful contributions to this Inquiry. I also wish to thank Members of the task group for approaching this inquiry with the seriousness and dedication that the subject warrants, for their devotion of a not inconsiderable amount of time at this point in the Council term and for being prepared to accommodate challenging perspectives that fortunately none of us are likely ever to encounter in our normal daily lives. Last but by no means the least, on behalf of task group members, I wish to thank Scrutiny Services and in particular, Angela Holt, the principal scrutiny officer for the Community & Adult Services Scrutiny Committee, for working so hard in order that this report would be ready for submission to the last Executive Business Meeting of the current Administration Councillor Ralph Cook Chair, Community & Adult Services Scrutiny Committee 26 March

6 TERMS OF REFERENCE To obtain an understanding of sex work/ prostitution and its historical, political, social and cultural complexities. To gain an understanding of the current situation with regards to sex work/ prostitution in Cardiff, in terms of the issues for sex workers/ prostitutes and communities and in terms of the services provided for sex workers/ prostitutes. To examine different approaches taken by local authorities, statutory partners and third sector partners in the U.K. to dealing with sex work/ prostitution and identify the impact of these approaches on local authorities, statutory partners (such as police and health services), sex workers/ prostitutes, and other citizens. To ensure that the following issues are explored as part of the above work: substance misuse; sexual health; mental health; health & safety; and pathways to dealing with trafficking for sexual exploitation. To scrutinise any proposals for tackling sex work/ prostitution in Cardiff that come forward during the life of the Inquiry, utilising the findings of the above exercises to inform the scrutiny. To make informed recommendations to all relevant parties on the most appropriate approach to sex work/ prostitution in Cardiff considering its impact on the local authority, health services, sex workers/ prostitutes, and other citizens. To refer any evidence that emerges as part of this Inquiry regarding children aged under eighteen involved in sexual exploitation and abuse to the Children & Young People Scrutiny Committee. 6

7 Following initial evidence gathering for this Inquiry, Members agreed to refine the scope to focus on women involved in sex work/ prostitution. This is not to negate the experiences of men or transgender individuals involved in sex work/ prostitution but a reflection on the fact that their needs differ significantly from those of women involved in sex work/ prostitution and subsequently require different solutions and service provision. It became apparent to Members that the Inquiry would not adequately cover all these areas; hence Members decision to narrow the scope. Members of the Task & Finish Group were: Councillor Ralph Cook (Chair) Councillor Geraldine Grant Councillor Jacqui Gasson Councillor Martin Holland Councillor Lyn Hudson Councillor Jaswant Singh 7

8 DEFINITIONS & OVERVIEW OF LEGISLATION What is prostitution? D1. Prostitution is defined in the Encarta Dictionary: English (U.K.) as the act of engaging in sexual intercourse or performing other sex acts in exchange for money, or of offering another person for such purposes. D2. The Home Office guidance Effective Practice in Responding to Prostitution adopts a wider definition in recognition that payment can be made by other means than money: prostitution is defined as the provision of sexual services in exchange for some form of payment. D3. Within legislation covering England and Wales, it is not illegal for two consenting adults to buy/sell sexual services in private. It is illegal to buy/ sell sexual services in public, for two or more sex workers to work together, to run a brothel, to coerce or harass or exploit or make gain from prostitution or to traffic. Commentators argue that legislation makes a public/ private distinction in the context of sex work; it is the visibility of sex work that is deemed to be injurious to society. Commentators further argue that recent changes in legislation have focused on coercion, victimhood and the need to tackle trafficking and have not addressed the safety needs of off street sex workers. Further information is provided in Appendix A. 8

9 KEY FINDINGS Role of Local Authority KF1. There is recognition by the Home Office, Welsh Government and the Association of Chief Police Officers that local authorities are ideally placed to play a key role in developing a response to prostitution and in coordinating activities across a range of statutory, non statutory and voluntary agencies. The Home Office encourages local authorities to develop a response that aims to improve the outcomes for the community and particularly those involved in prostitution. KF2. Currently, there is no overarching strategy for tackling sex work/ prostitution in Cardiff. Various work streams that are part of the Integrated Partnership Strategy (IPS) address some of the issues faced by women involved in sex work/ prostitution. However, Members found that at present there is a piecemeal response to tackling sex work/ prostitution with operational work and service delivery driven by individual officer commitment as opposed to strategic imperatives. KF3. Members heard that there was a risk that the IPS may not prioritise tackling sex work/ prostitution due to the relatively small numbers of women involved and the fact that on street sex work/ prostitution is in localised areas. Members believe that this position would not only miss the importance of tackling sex work/ prostitution for the sake of assisting the women involved but would miss an opportunity to improve the way associated issues (such as community cohesion, physical and sexual violence, domestic abuse, child abuse, substance misuse, sexual health and mental health) are tackled. Sex Work/ Prostitution in Cardiff KF4. Cardiff has women involved in both on and off street sex work/ prostitution, as well as men and transgender individuals involved in off street sex work/ prostitution. Women involved in off-street sex work/ 9

10 prostitution account for approximately 90% of sex work/ prostitution in Cardiff. The number of women involved in sex work/ prostitution is growing with the use of mobile phone technology and the internet; some witnesses also stated that the economic recession has led to an increase. KF5. This Inquiry found that local research and evidence from frontline workers indicates that the situation in Cardiff mirrors the national picture with regard to the experiences of women involved in sex work/ prostitution and the differences between on and off street sex work/ prostitution. Members are clear that, whilst sex work/ prostitution has been shown to be multi-traumatic whether on or off street, women involved in on street sex work/ prostitution have life experiences that place them at the very end of the spectrum of disadvantage. On Street Sex Work/ Prostitution KF6. As at November 2011, witnesses to the Inquiry estimated there were between women involved in on street sex work/ prostitution in Cardiff. The vast majority (over 95%) of these women come from abusive, deprived backgrounds, with high numbers experiencing sexual and physical abuse in their childhood and domestic violence in their adulthood. KF7. Recent research in Cardiff has shown that many of the women involved in on street sex work/ prostitution have been exploited or coerced into street sex work, often before they are eighteen years old. Normally, substance misuse then follows, for three main reasons: it is a power control mechanism for pimps; it temporarily helps women to cope with/ forget trauma of sex work; and drug use is often normalised in these women s upbringing. KF8. Recent research in Cardiff shows that women involved in on street sex work/ prostitution are subjected to extreme levels of sexual and physical violence and harassment. At least 95% of women involved in on street sex work/ prostitution have very high levels of Class A (heroin and/ or crack) misuse and have poor physical health. 10

11 KF9. The vast majority of women involved in sex work/ prostitution want to stop being involved. They continue to remain involved due to: coercion or exploitation control methods being used against them; substance misuse meaning that there is a need to earn high amounts of money; low selfesteem (resulting from their life s experiences) meaning that many experience feelings of helplessness and believe that there is no alternative for them; most women involved in sex work/ prostitution are isolated from society, with no support networks to assist their exit from sex work/ prostitution. Off Street Sex Work/ Prostitution KF10. Members found that there is limited evidence regarding off-street sex work/ prostitution in Cardiff, as there are no outreach services to these establishments. Recent research (Sagar & Jones February 2011) identified 395 individuals involved in off street sex work/ prostitution in Cardiff. This finding is acknowledged to be an under-representation as the research did not cover all the overt off street sex work establishments in Cardiff or all the escort agencies; neither did it cover covert establishments or all the internet sites covering Cardiff. KF11. Nationally, many of the women involved in off-street sex work/ prostitution come from abusive, deprived backgrounds with high numbers experiencing sexual and physical abuse in their childhood and domestic violence in their adulthood. The vast majority of these women have become involved in off-street prostitution for financial reasons. KF12. There was no evidence from the research in Cardiff of women involved in off-street sex work/ prostitution being subjected to sexual and/ or physical violence; this differs from national research and the experiences of frontline workers elsewhere in the U.K., where sexual and physical violence and harassment are experienced by some women involved in sex work/ prostitution. 11

12 KF13. There was no evidence from the research in Cardiff of women involved in off-street sex work/ prostitution having substance misuse issues; this differs from a frontline worker s experience of witnessing substance misuse in off street establishments. National research and the experiences of frontline workers elsewhere in the U.K. show that there is widespread drug use amongst women involved in off street sex work/ prostitution. KF14. The vast majority of these women continue to be involved in off -street sex work/ prostitution for one or more of the following reasons: need to earn a higher income than they believe they could otherwise earn; they believe there are no other employment opportunities open to them. Issues faced by women involved in sex work/ prostitution in Cardiff KF15. Women involved in sex work/ prostitution face many challenges and issues, which can be categorised as follows: safety issues, resulting from physical and sexual violence and assault, coercion and exploitation; health issues, including substance misuse, sexual health, mental health and physical health; and accommodation issues. Due to the impact of these, women involved in sex work/ prostitution often describe feelings of low self-worth, social isolation, powerlessness and despair. Service Provision in Cardiff KF16. There is a need for women involved in sex work/ prostitution to be able to access a range of services, given the extent of the challenges these women experience. Currently, there is some dedicated service provision in Cardiff and some examples of innovative, partnership working, such as the Conditional Cautioning and Section 17 orders scheme. However, Members found that these are often the result of the efforts of committed individuals, such as those who attend the Cardiff Sex Workers Forum. There are a range of generic services that are, in theory, available for women involved in sex work/ prostitution. 12

13 KF17. Members found that there a number of issues with the current provision of services, which can be categorised as follows: accessibility and flexibility of service provision; level of service provision; and appropriateness of service provision. In addition, due to differences in professional cultures and/ or a lack of awareness of the issues faced by women involved in sex work/ prostitution, many of these services deal with the issues presented to them in isolation, without any knowledge of other agencies involvement or of the wider issues faced by the woman. KF18. Members found that there is therefore a need for more sustainable and effective partnership working systems to be put in place to ensure momentum on tackling sex work/ prostitution is maintained and that a holistic, cohesive approach is taken. Other approaches to tackle sex work/ prostitution Strategic KF19. Members found that approaches used elsewhere in the U.K that focused on harm reduction, safeguarding communities, effective justice, assisting women to leave sex work/ prostitution and partnership working led to demonstrable improvements in tackling sex work/ prostitution. KF20. Members found that an effective strategic approach needs to accommodate the differing needs and issues of women, men and transgender individuals involved in on and off street sex work/ prostitution as well as trafficking. Members found that it is essential that there is debate about what should be the underpinning beliefs and philosophy about tackling sex work/ prostitution; many places have utilised public debates to assist in this process. KF21. A key challenge faced in determining an appropriate approach to tackling sex work/ prostitution is the need to balance the needs of residents and communities affected by sex work/ prostitution with the 13

14 needs of women involved in sex work/ prostitution, who are often extremely vulnerable. Operational KF22. Members looked at various operational approaches to tackling demand for sex work/ prostitution, supporting women involved in sex work/ prostitution and reducing the impact of sex work/ prostitution on residents and communities. There were some clear lessons to be learnt from the implementation of approaches elsewhere, including: the need to task an individual to take lead responsibility for co-ordinating work to tackle sex work/ prostitution; recognising that tackling sex work/ prostitution is a shared responsibility; and providing awareness raising training to help create cultural change. KF23. Members found that information sharing, intelligence gathering and monitoring are key elements to enable resources to be appropriately targeted and that case management and tasking approaches are useful in achieving this. Members found that building up key relationships and pathways between networks of providers enables services to be reconfigured to meet the needs of women involved in sex work/ prostitution. KF24. Members found that offering outreach services and drop-in services increased the effectiveness of services in tackling sex work/ prostitution compared to simply signposting to generic services. Members recognise that it is important to ensure there is appropriate health and safety for outreach and frontline workers. KF25. Members found that it was important that the routes used to involve children and young women in sex work/ prostitution are investigated, so that the correct strategic and operational approaches are taken to address them, such as safeguarding, diversion end early intervention strategies. 14

15 Resources KF26. Members found that most local authority support comes from providing a co-ordinating role to lever in additional monies and resources and ensuring existing services are accessible to women involved in sex work/ prostitution as opposed to finding new monies. There is a need to be creative with identifying and securing resources, utilising a combination of other funding sources such as: Police funds; community safety monies; Home Office grants; Health funding; Big Lottery and other charity funding. Impact on Residents/ Community KF27. Members found a diminishment in the quality of life for residents in the communities where sex work/ prostitution takes place in Cardiff, due to anti-social behaviour from kerb crawlers, women involved in sex work/ prostitution and pimps, detritus from sex work and damage to the area s reputation. Despite this, recent research shows that communities are tolerant of sex work/ prostitution and are concerned for the safety of women involved in sex work/ prostitution: out of 205 responses collated in the research project, only 8 responses were zero tolerant or contained morally loaded comments. KF28. Recent research has shown that the majority of women involved in on street sex work/ prostitution live in the communities where they work ; however they feel isolated and outside these communities. Members believe there is a need to address this and enable women involved in street sex work/ prostitution to feel included in the community so that they can access services, improve their self-esteem and feel accepted to be able to re-enter mainstream society. KF29. Members found that, since 2008, the number of complaints from residents in the communities where sex work/ prostitution takes place in Cardiff has dropped significantly. There is a willingness from some of the community to be involved in developing a manageable solution to tackling sex work/ prostitution. Research has found that, whilst residents do not 15

16 want sex work/ prostitution on their doorstep, they think there is a need for a safe place for women involved in sex work/ prostitution to work. Trafficking KF30. This Inquiry builds on the findings of the Committee s earlier Inquiry into the trafficking of adults for the purposes of sexual exploitation (December 2010). Members found that there is movement between different types of trafficking - labour exploitation and sexual exploitation - and between internal and external trafficking. KF31. Due to the linkages between sex work/ prostitution and trafficking, Members found that a sex work/ prostitution strategy should include mechanisms/ pathways to tackle internal and external trafficking. KF32. Members found the following multi-agency mechanisms to be of use when tackling trafficking: increasing awareness amongst frontline staff and communities; building and sharing intelligence; route map/single point of contact; and encouraging reporting. KF33. Members found that different approaches to building intelligence are required, depending on the landscape of off-street sex work/ prostitution. Where organised criminal gangs are involved in off-street sex work/ prostitution, intelligence led covert investigations are required; where this is not the case, regular visits to off-street establishments can both disrupt activity and enable relationships of trusts to be developed, leading to information being shared. KF34. Members found that the Policing and Crime Act (2010) offers the opportunity to adopt tougher licensing policies for Sexual Entertainment Venues such as saunas and massage parlours that are often used as offstreet sex work/ prostitution establishments. Members found that other local authorities have adopted either quota policies with tougher licensing criteria or nil policies for some Sexual Entertainment Venues. 16

17 RECOMMENDATIONS Members deliberations on the issues raised by this Inquiry have been regularly interspersed by discussions about the balance between a woman s right to choose to be involved in sex work/ prostitution and the issues of power and control mechanisms used to coerce and exploit women to be involved in sex work/ prostitution. There may well be a small minority of women who choose a lifestyle involving sex work/ prostitution. However, the majority of the evidence that Members have received demonstrates that most women involved in sex work/ prostitution do not fall into this category. Members believe that every effort should be made to reduce the demand for sex work/ prostitution, support women involved in sex work/ prostitution, prevent women becoming involved in sex work/ prostitution and reduce the impact of local residents and communities. The recommendations below are aimed at achieving this, ensuring Cardiff Council plays its role in effectively tackling sex work/ prostitution. This report provides many useful examples of approaches proven to work elsewhere; we therefore urge the Executive to reflect on the findings and accept the recommendations. Leadership R1. Identify a relevant Executive Member to provide leadership on the issue of effectively tackling sex work/ prostitution. R2. Identify a senior manager to co-ordinate cross-departmental working to effectively tackle sex work/ prostitution. Or Identify an appropriate Senior Responsible Officer from the Integrated Partnership Board Programme 17

18 Strategic Approach R3. Develop a multi-agency evidence-based strategy for effectively tackling sex work/ prostitution in Cardiff that: a. Is developed by working with: i. key partner agencies such as South Wales Police, Cardiff & Vale University Health Board, Probation, Safer Wales and other relevant third sector partners ii. key internal service areas, to include: social services, education, communities, city services, city management, city development iii. local residents and communities affected by sex work/ prostitution b. Is based on principles of harm reduction, safeguarding communities, effective justice and assisting women to exit sex work/ prostitution c. Addresses the issues identified in this report d. Uses the evidence on effective good practice contained in this report e. Contains measurable outputs and outcomes and a robust monitoring and evaluation framework. R4. Clarify the governance and accountability interface between the Integrated Partnership Board and the Cardiff Sex Workers Forum. Awareness Raising R5 Task the Chief Education Officer to consider providing education to certain groups of secondary school age pupils (as part of their substance misuse education programme and/or part of their personal social health education) on positive relationships. R6. Ensure that the current induction training includes a statement that the Council is working to tackle sex work/ prostitution and provides contact details for staff to use in cases of sex work/ prostitution. 18

19 R7. Ensure that more detailed training be explored and delivered for officers who may come into contact with women involved in sex work/ prostitution in their work so that they are cognisant of the issues involved. Operational Initiatives R8. Explore the pros and cons of diverting street sex work/ prostitution into non-residential areas to reduce the impact on residential neighbourhoods. R9. Work with partners involved in the provision of community safety, crime and disorder, community cohesion, health and social care services to review current services to ensure that service provision: a. Is flexible and accessible to women involved in sex work/ prostitution b. Recognises the multi-traumatic impact of sex work/ prostitution and the need to take a holistic approach to service provision. R10. Work with the partners identified in Recommendation Nine to review whether a case management approach would offer benefits in effectively tackling sex work/ prostitution. R11. Consider whether further research identifying the routes into sex work/ prostitution is required and commission research accordingly. R12. Extend the Council s licensing policy to cover massage parlours and saunas to enable inspection visits to be made to these premises; Members recommend joint visits with outreach workers. R13. Explore the pros and cons of having a single point of contact to deal with trafficking. 19

20 POLICY FRAMEWORK Policy Framework in Wales 1. The Home Office retains responsibility for policing and for many crime and disorder matters in Wales. In 2006, the Home Office issued a Co-ordinated Prostitution Strategy Paying the Price that set out a holistic strategy to tackle the problems associated with prostitution and to reduce overall levels of street prostitution. A key part of the strategy allowed a change in approach towards those who were engaged in street prostitution to encourage engagement with services that could help them to begin to change their lives and help them step out of prostitution 2. The Home Office has commissioned several reports in recent years examining how best to tackle prostitution, culminating in the recent Effective Practice in Responding to Prostitution (April 2011). This provides examples of various styles of good practice from across England and Wales, concentrating primarily on street prostitution which is considered to be where the risks are most acute and those involved have the greatest range of needs. 3. The Home Office guidance is aimed at the strategic level of local authorities to allow and encourage them to develop a response to prostitution that aims to improve the outcomes for the community and particularly those involved in prostitution. It recognises that how authorities within an area choose to respond to prostitution will, of course, depend upon the local circumstances and the guidance will identify effective practice for assessing local circumstances. 20

21 4. The Association of Chief Police Officers (ACPO) has issued Strategy and Supporting Operational Guidance to Policing Prostitution and Sexual Exploitation (2011), which promotes a holistic approach to policing prostitution, keeping in balance individual and community needs and the need to investigate and prosecute those who exploit and abuse. It states: this strategy also recommends an approach based throughout on partnership with local authorities, other statutory agencies and nongovernmental organisations... to put the matter simply, the policing of prostitution will at best only achieve short-term results unless there is effective partnership at the local and strategic level to support victimised individuals and communities with appropriate legislation and enforcement resources. 5. In Wales, one of the key policies is set out in the Welsh Government s Right to be Safe Strategy (March 2010) which sets out a six year integrated strategy for tackling all forms of violence against women, including exploitation through prostitution and trafficking. This report states that in the UK there are estimated to be around 80,000 people involved in prostitution. As well as being at risk of exploitation, they are particularly likely to be the victims of violent or sexual crime - taken from Paying the Price. Home Office The Right to be Safe Strategy focuses on women fleeing sex work and trafficking. It therefore does not cover male or transgender sex workers or women who are sex workers but do not want to flee sex work but are sex workers by choice. 7. The Right to be Safe Strategy sets out 4 key priorities: Prevention and Raising Awareness of Violence against Women and Domestic Abuse. Providing Support for Victims and Children. Improving the Response of Criminal Justice Agencies. Improving the Response of Health Services and Other Agencies. 21

22 8. Right to be Safe contains the following statements re Prostitution and Trafficking: Prostitution and Trafficking Women fleeing prostitution or trafficking are particularly vulnerable and need to feel confident that there are services in place to support them. Women affected by these issues are often difficult to reach and the problem is largely hidden. As our knowledge and understanding of these issues increases we are better placed to provide safe exit routes for these vulnerable women. We now have small projects in place in south Wales, such as the Diogel Project developed by Black Association of Women Step Out (BAWSO) which offers services to support trafficked persons including supported accommodation and counselling, health and psychological assistance. The next step will be to work with partners in north Wales with the aim of making provision available in that area. We will also be supporting the Trafficking to ensure frontline staff have the right tools and expertise to identify victims of trafficking and offer them appropriate protection and support, bearing in mind the special needs of children. Sexual Assault referral Centres SARCs Together with the Home Office and other partners, we have supported the continued development of Sexual Assault Referral Centres (SARCs) in Wales. We now need to ensure that SARCs are delivering against a common service specification that they make further progress towards meeting minimum standards and that best practice and learning is shared between practitioners in Wales. SARCs provide an immediate crisis service for victims of rape and sexual assault and they provide longer-term advocacy and counselling for victims. We want to extend the support for women who are victims of sexual violence so we will be exploring options to extend the service provided by the domestic abuse helpline to meet this need. This will ensure that any victim who does not wish to involve criminal justice agencies is also able to receive a service to ensure their safety and health needs are met. 22

23 Links with Substance Misuse Problems Working Together to Reduce Harm drew attention to the links between substance misuse and violence against women. In response, we have recently published a module of our Substance Misuse Treatment Framework that sets out good practice in joint working between domestic abuse and substance misuse services. We will now be rolling out further training to ensure that the Treatment Framework assists in improving the quality of both sets of services. We are also promoting the expansion of outreach services to identify women involved in prostitution and ensure they are offered appropriate support; including those women arrested as part of the Drugs Intervention Programme (DIP). 9. With regard to this Inquiry, Right to be Safe quotes the following relevant achievement flowing from the previous Domestic Violence Strategy (2005): Pledging funding for a safe house for women fleeing prostitution including trafficked women in south Wales and a new refuge for victims with complex needs in Blaenau Gwent. 10. The Right to be Safe Implementation Plan contains many actions that could impact on sex work/ prostitution and trafficking; it contains the following specific actions relating to prostitution and trafficking: 2.27 Establish a project in North Wales to support women fleeing prostitution and trafficking. By Led by WAG 5.10 Develop a standard reporting protocol with the Crown Prosecution Service, to provide regular all Wales data relating to charging, prosecutions and convictions for violence against women, domestic abuse, forced marriage and honour based crimes (including trafficking) cases. By Led by Welsh Assembly Government & Crown Prosecution Service 23

24 5.11 Develop a standard reporting protocol to be agreed with the ACPO Cymru of reported incidents and arrests of violence against women, domestic abuse, forced marriage and honour based crime (including trafficking). By Led by Welsh Assembly Government & ACPO Cymru 5.15 Review lessons learned and measure the effectiveness of the Black Association Women Step Out (BAWSO) Poppy project and Safer Wales Ltd Prostitution project to continue to inform the development of support for women and children fleeing prostitution and trafficking. By 2011 Led by Welsh Assembly Government & BAWSO 11. In addition to the above, the Equality Act 2010 includes a new public sector equality duty that requires public authorities and those carrying out a public function to consider how they can positively contribute to a fairer society through advancing equality and good relations in their day-to-day activities. The Welsh Government and Equality and Human Rights Commission have issued a joint statement which highlights that local government has a vital and central role in tackling violence against women and that the duties in the Equality Act offer an important opportunity to tackle the incidence of violence against women Towards the end of this Inquiry, the Welsh Government issued the Social Services Bill (Wales) Consultation Document (12 th March 2012). This aims to support the provision of services to people in need in an integrated way, to maintain and enhance their well-being. The legislative proposals include proposals on safeguarding and protection include provisions for a statutory basis for adult protection. The consultation period ends 1 st June Violence against women and domestic abuse, the public sector equality duty and single sex services - 22 nd February Karin Phillips, Welsh Government & Kate Bennett, Equality and Human Rights Commission. 24

25 Policy Framework in Cardiff 13. In June 2011, Cardiff Council and statutory partners agreed a new approach to developing an integrated policy, planning and performance framework for statutory partnerships in Cardiff. It included the development of one integrated strategy which would incorporate the statutory requirements of the existing partnership plans (Community Strategy; Children & Young People s Plan; Health, Social Care & Wellbeing Strategy; and the Community Safety Strategic Assessment). 14. The result was the What Matters Integrated Partnership 10 year strategy for Cardiff providing the long-term collective partnership vision for the promotion of economic, social and environmental wellbeing and high quality public services in Cardiff between and structured around the delivery of seven strategic outcomes for improving the quality of life of citizens and communities. 15. The seven outcomes reflect the aspirations of the people of Cardiff: People in Cardiff are safe and feel safe Cardiff has a thriving and prosperous economy People in Cardiff achieve their full potential Cardiff is a great place to live, work and play People in Cardiff have a clean, attractive and sustainable environment People in Cardiff are healthy Cardiff is a fair, just and inclusive society. 16. In addition, Cardiff Council has selected an eighth outcome, to reflect its focus on partnership working: The Council delivers improved outcomes for the city and its citizens through strong partnerships. 25

26 17. Within the Council, the Corporate Plan is the key document that links the What Matters Strategy to the Council s medium term strategic priorities, corporate risks, required improvement actions, the budget setting process, service area operational business plans and individual performance and development reviews. The Corporate Plan was agreed at Full Council on 23 rd February The Inquiry heard that work to achieve the strategic outcomes includes strands of work that cover service provision and, whilst these are not designed specifically to meet the needs of women involved in sex work/ prostitution, they address some of the issues also faced by these women. The Inquiry was informed that the relevant work streams that link are : Early Years Intervention Youth Participation Vulnerable Families Safety & Safeguarding Communities Community Cohesion Emotional and Mental Health Substance Misuse Clean & Sustainable Environment. 19. Currently, there is no overarching strategy in Cardiff to tackle prostitution and the Inquiry heard from some witnesses that this is leading to a piecemeal response; the operational work and service delivery for women involved in sex work/ prostitution that is happening in Cardiff is driven by individual officer commitment and operational needs and opportunities, with subsequent gaps in available resources and in service delivery. This work is described in more detail in points and includes the Cardiff Sex Workers Forum, which previously reported to the Safer Capital Partnership, with dotted line reporting into the Cardiff Health Alliance and Children and Young Peoples Partnership. 26

27 20. The Inquiry heard that, with the changes in the framework for statutory partnerships in Cardiff, it was no longer clear who the Cardiff Sex Worker Forum is accountable to within the Integrated Partnership structure. Witnesses stated that it was essential that the Integrated Partnership maintain leadership and momentum across Cardiff, backed up by sustainable and effective joint working systems to embed continual improvement in support services to women involved in sex work/ prostitution and avoid reliance on key individuals who may move roles. The Inquiry heard from several witnesses that a Sex Work/ Prostitution coordinator or czar would be a useful mechanism to achieve this. 27

28 SEX WORK/PROSTITUTION IN CARDIFF 21. This Inquiry has greatly benefited from recent research in Cardiff carried out by Dr. Tracey Sager and Debbie Jones, Swansea University, which has focused on women involved in sex work/ prostitution, both on street and off street, and community perceptions of sex work/ prostitution. The Inquiry has also examined research findings from 2007 on women involved in street sex work/ prostitution in Cardiff. The findings of this research have been widely discussed amongst key stakeholders in Cardiff, via the Cardiff Sex Workers Forum and community presentations, and a summary of these findings are included in this report (pages 30-34). 22. In addition, the inquiry received evidence from frontline service providers who engage with women involved in sex work/ prostitution (on and off street) on a regular basis; their knowledge and experiences have been added to the research findings to provide a summary of the scale of sex work/ prostitution in Cardiff and the issues this leads to. Overview 23. Cardiff has both on street and off street sex work that covers male, female and transgender sex work, all of which have very different characteristics and bring different challenges to service providers. There are specific, distinct areas of Cardiff where stakeholder agencies are aware that women involved in sex work/ prostitution operate, covering areas in Splott and Grangetown. There may be other areas in Cardiff but this report focuses on the above areas only as the available evidence relates to these areas. 24. Off-street prostitution accounts for approximately 90% of sex work in Cardiff. This area is growing and changing in nature with use of mobile phone technology and the internet. 28

29 Scale of On-street prostitution 25. Estimates provided to this Inquiry in November 2011 of the numbers of women involved in sex work/ prostitution put it at between women. In 2011, StreetLife were providing one-to-one support to 47 women involved in street sex work/ prostitution and outreach support to 120 women involved in street sex work/ prostitution. Of these, they estimate that between eight to ten women were from outside Cardiff and the rest were from Cardiff. There are known to be male sex workers in Cardiff but there are no specific research findings currently available re this. Scale of Off-street prostitution 26. Sagar & Jones research (February 2011) identified 395 individuals involved in off sex work/ prostitution from information on-line: o 303 individuals advertising on one internet site, including male, female & transgender and couples o 11 additional individuals advertising on another host internet site - gay or same sex male, female, transgender and couples o 29 additional individuals advertising independently on internet o 18 additional individuals advertising in local advertiser - all female o 14 additional individuals working out of an escort agency o 20 additional individuals in three off- street establishments 27. The above does not include individuals involved in sex work/ prostitution in four other, overt off street sex work establishments in Cardiff or in ten other escort agencies in Cardiff. In addition, the research looked at two internet sites but the researchers identified another eleven internet sites that cover Cardiff; it is highly likely that other individuals may advertise on these. 29

30 Overall Characteristics of Women involved in Sex Work/ Prostitution 28. Research in Cardiff has found significant differences between women involved in on and off sex work/ prostitution as follows: a. Drug Use - women involved in on street sex work/ prostitution have very high levels of Class A (heroin and/ or crack) misuse (Matt & Hall 2007 & Sagar & Jones 2010) whereas the research into women involved in off street sex work/ prostitution in Cardiff found no evidence of drug or alcohol misuse. 2 b. Violence - women involved in on street sex work/ prostitution experience very high levels of violence (Matt & Hall 2007 & Sagar & Jones 2010) whereas the research into women involved in off street sex work/ prostitution found no evidence of violence. 3 c. Health - women involved in on street sex work/ prostitution have very poor physical and mental health - it was not possible to have clear findings about their sexual health. Women involved in off street sex work/ prostitution have good physical health and have to be attractive; in terms of sexual health, 80% had previously had a sexual health check up but only 50% had had an HIV test and only 50% had had a Hepatitis B vaccination. d. Ethnicity - all the women involved in on street sex work/ prostitution were white and local - all were from Cardiff apart from one from Swansea. The majority of women involved in off street sex work/ prostitution were white with a significant number from outside the UK - Eastern Europe, France, Germany, Lithuania, South Africa and Australia. e. Entry routes - Matt & Hall s study (2007) found that entry routes for women involved in on street sex work/ prostitution was via coercion 2 This varies from other research which has found widespread drug use amongst off street sex workers, either for recreational use or at a lower level of addictive use 3 This varies from research findings elsewhere which have found that off-street prostitution is multitraumatic, with verbal, physical and sexual assault and harassment regular and widespread. 30

31 from family members and friends, often whilst below the legal age of eighteen. Sagar & Jones (2011) research into women involved in off street sex work/ prostitution found most had chosen to become involved for financial reasons. Most women involved in off street sex work/ prostitution had not worked on- street but had worked in other areas of the sex industry such as lap dancing clubs. f. Secrecy - there was one area of commonality between women involved in sex work/ prostitution; the vast majority - over 90% - indicated that sex work was a secret occupation (Sagar & Jones 2010 & 2011). 29. The Inquiry heard that the majority of women involved in on street sex work/ prostitution are in abusive and violent relationships. The majority are known to the criminal justice system, either for drug offences or for other crimes linked to the need to make money to pay for drugs, such as shoplifting, or for common assault or fighting. 30. The Inquiry heard that there is a difference amongst women involved in on street sex work/ prostitution between those who have a managed approach to their work and those who have a chaotic lifestyle, fuelled by heroin/ crack addiction (Matt & Hall 2007 & Sagar & Jones 2010). 31

32 An Overview of Street Sex Work in Cardiff May 2007 (Matt & Hall) a. The researchers spoke to 12 female sex workers in central Cardiff. Of these, 10 reported being involved in prostitution before they were 25 years old and 8 reported being involved in their teens or younger, of whom 6 respondents stated they were forced into prostitution before they were 16 years old - 5 respondents reported being forced into sex work by known associates or family members when aged 10-12, another one by a man who introduced her to heroine at age 12 and then forced her to sell sex to pay for the drug. 2 of the respondents were in care when they became involved in prostitution. b. Sexual Services could be bought for 10: 20 oral sex, 30 full sex and 40 for both (2007 prices). c. Drug Use was prominent - 11 out of 12 were using drugs when interviewed (heroin and crack). Research found that drug use did not normally drive their entry into sex work but exposure to drug use followed resulting in a cycle of dependency of sex work and drugs and subsequent risks and vulnerabilities - risky behaviours etc. d. Sex work was dangerous - 10 out of 12 respondents had experienced violence and rape and all had experienced risky & unprotected sex, exploitation, emotional and psychological impact - disassociation, fatalism and low self-esteem. e. Some respondents managed their approach to sex work, keeping regular hours and expecting to earn roughly the same amount before heading home. Others were much less organised in their approach and used their money to buy drugs and then worked to get more money to buy more drugs. The women in the second category tended to be younger and to work much longer hours, into the early morning, engage in more risky behaviour and be more exposed to abuse and exploitation. f. Some respondents worked in industrial areas to avoid potential trouble and disruption caused in residential areas whilst others chose to work in residential areas so they could call on people in case of trouble. Many of those interviewed would not work indoors because of safety fears about who would be there and how they would escape if a punter became dangerous. g. Some respondents stated that they looked out for each other and provided support to one another. However, there is also evidence of jealously, competition and intimidation between women working on the street. h. Sex work entangled with all aspects of women s lives - social relationships, home life, finances, health, self-esteem, hopes for the future. Researchers state that this poses real challenges to service providers and necessitates a holistic approach to support and exit services, particularly in terms of making access to services easier and inclusive. 32

33 Reaching out to female street sex workers in Cardiff: Findings from engagement events - Sagar & Jones - July 2010 a. Three engagement events were held with sex workers in Cardiff during December 2009 and May 2010, via Safer Wales Street Life vehicle and engaging with street sex workers directly. b. 17 women took part - self selecting - findings not statistically significant and cannot be generalised to wider sex worker population but do provide a baseline and snapshot of some sex workers in Cardiff and once triangulated with the knowledge of service providers and the findings from study by Matt & Hall can be considered as accurate at that time. c. Demographics/ characteristics of 17 female street sex workers: - All respondents were white - All respondents were aged between out of 17 lived in the locality where they worked - 1 out of 17 travelled in from Swansea - 14 out of 17 had children (not living with them) - 5 out of 17 were under 18 years old when they became sex workers - The majority had begun selling sex when they were over 21years old - 12 out of 17 were using drugs - majority were heroin/ crack addicts - 5 out of 17 were taking/ had taken methadone for heroin/ crack addiction - 1 out of 17 was on a waiting list for drug addiction treatment - It was clear to interviewers that some respondents were under the influence of alcohol or drugs at time of interview - Researchers noted that vast majority of respondents had poor physical and mental health -seriously underweight, depression, anxiety, chest problems associated with drug use - 9 out of 17 had been violently assaulted, some several times, including: knife attacks, stalking, head smashed in with a rock, teeth punched out - One respondent mentioned young men in the area repeatedly attacked her with bricks and stones. d. None of the violent attacks or incidents had been reported to the Police - lack of trust with police. e. None of respondents had ongoing support from family, partners and friends simultaneously - most of the women said their work was kept secret. Respondents referred to other street sex workers as associates rather than colleagues or friends. f. 12 sex workers accessing services other than Street Life - including Women s Turnaround (Safer Wales), DIP/ Kaleidoscope, Inroads, Cardiff Additions Unit. 5 sex workers were only accessing Street Life van. g. 11 out of 17 had not been arrested by Police for prostitution offences within the last 12 months. 33