Domestic violence needs assessment

Transcription

1 Brighton & Hove Intelligent Commissioning Pilot 2010/11 Domestic violence needs assessment Needs analysis Services and investment mapping Outcomes framework Commissioning priorities from 2011 March 2011

2 Acknowledgements Our thanks go to everyone who has contributed to the development of this Needs Assessment and participated in the consultation process: Most importantly, to local survivors of violence and service users, who gave up their time to take part in local consultations, who spoke honestly and with strength about what were often difficult and very personal experiences, and shared with us their ideas and recommendations for how local services could be so much better in responding to domestic violence. The data analyst and subject-matter specialists, who collated and analysed data and information, co-ordinated consultations and wrote the Needs Assessment (Caroline Palmer, Eleri Butler and Michelle Pooley), and research officer who advised on the process and content of the report (Claire Wardman). Community Safety Commissioner (Linda Beanlands) and other Lead and Strategic Commissioners, members of the Domestic Violence Commissioning Steering Group, and Brighton & Hove City Council Members, including representatives from the Overview and Scrutiny Commission. All the other individuals, agencies and partnerships who provided information and feedback, and attended meetings and events to discuss and challenge emerging findings (for a full list see Appendix 1: List of consultees). 2

3 Domestic Violence Needs Assessment 2010/11 CONTENTS 1. Executive summary Background and scope Key issues and gaps Prevalence summary of national data Domestic violence in Brighton & Hove Cost of domestic violence to the city and local investment into its prevention View of service users and of professionals Gaps in data collection, meeting needs and services Joint commissioning plan for 2011 outcomes and priorities Principles to inform domestic violence commissioning and service delivery Outcomes framework: citywide strategic outcomes Outcomes framework: service-level outcomes for stakeholders Priorities for domestic violence commissioning and service delivery Timeframe Introduction and background Introduction Scope of the assessment: defining domestic violence Who experiences and perpetrates domestic violence? The international and national context International framework for addressing domestic violence National policy framework for addressing domestic violence National legislative framework for addressing domestic violence The local strategic context Domestic violence and other forms of violence against women What are the problems and why The prevalence and impact of domestic violence Risk factors including risk of homicide A barrier to achieving equality Domestic violence, gender and gender identity Domestic violence and people in BAMER communities Domestic violence and older people Domestic violence and its impact on children and young people Domestic violence and young people in teenage relationships Domestic violence and disabled people Domestic violence and lesbian, bisexual and gay people Impact on physical and mental health Domestic violence, alcohol and drugs

4 3.6 Domestic violence and homelessness Domestic violence, economic exclusion and child poverty Domestic violence, women offenders and youth violence Impact on employers and employees Economic impact on the city The level of need in the local population Limitations of domestic violence data and access to services Estimated local prevalence Police recorded level and trend Police recorded domestic violence offences Offence breakdown Domestic violence offences perceived under the influence Recording of forced marriage, so-called honour-based violence and FGM Calls to local and national helplines Rise Helpline National Centre for Domestic Violence Men s Advice Line for male victims and Respect Phoneline for perpetrators National 24hr Domestic Violence Helpline and Broken Rainbow Helpline Geographic data on distribution of need Local socio-demographic data on service use Gender Age Black, Asian, minority ethnic and refugee identity Sexuality and transgender identity Disability Socio-economic status Children and young people / household composition Housing tenure Health, mental health and substance misuse Mosaic profiling Offender profile Age and gender of offenders recorded by the police Relationship between victim and perpetrator Probation data on offenders Service mapping: current services in relation to need Summary of services Summary of specialist or dedicated domestic violence services Summary of public, community and voluntary sector services Local service model: coordinated community response and tiers of need and intervention Specialist and dedicated domestic violence provision Rise (refuge, information, support, education)

5 5.3.2 Council homelessness, Housing Options and Sanctuary Scheme services Living Without Violence Programme Brighton & Hove Police Division including the Anti-Victimisation Unit Crown Prosecution Service Specialist Domestic Violence Court (SDVC) programme Surrey and Sussex Probation Trust Domestic Violence Multi-Agency Risk Assessment Conference (MARAC) system Survivors Network Sussex Sexual Assault Referral Centre (SARC) General public sector and community and voluntary services Children and Young People s Trust - Children, Youth and Family Services Community Safety Partnership Council - Adult Services Council - Housing Services NHS Brighton & Hove, primary care and other health services Child and Adolescent Family Courts Advisory and Support Service (CAFCASS) The Legal Services Commission Advice Services Network Break4Change Inspire Project Amaze Brighton Housing Trust Brighton Oasis Project Brighton Women s Centre Brighton and Hove LGBT Switchboard Daybreak Family Group Conferences Early Childhood Project Friends, Families and Travellers Hyde Housing Group - In Touch Teenage and Young Parents Services Impact Initiatives - Stopover Project Relate SafetyNet Single Parents Information Network Victim Support and the Witness Service Whitehawk Inn Young People s Centre Workforce development and investment mapping Workforce development National Occupational Standards Local competency framework and take-up of training Investment mapping

6 7. Projected service use and outcomes in 3-5 years and 5-10 years Views of the public Scrutiny Panel: older people Scrutiny Panel: support services for sexual violence survivors Hear Our Voices research with survivors Count Me In Too Supporting People Consultation service users Local Action Team consultation Women s focus groups feedback on local services Rape - victim experience review Specialist domestic violence services - service user feedback Rise services Rise Let s Play partnership therapeutic outreach group for mothers and children Rise & Brighton Women s Centre Connecting Women support group Specialist Domestic Violence Court service-user feedback MARAC feedback Views of professionals Brighton & Hove Domestic Violence Forum Senior Officers Strategy Group & Safe in the City Partnership Domestic Violence Gaps Analysis Supporting People Consultation professionals Equalities Impact Assessment of the Domestic Violence Action Plan 2010/ Community and Voluntary Sector Forum questionnaire Evidence base and expert opinion on best practice Local evidence from independent service evaluations MARAC Break4Change Rise outreach service in East Brighton: Safe as Houses Connecting Women (Rise and Brighton Women s Centre) Living Without Violence Sanctuary Scheme Review SDVC Programme Evaluation Cost effectiveness National evidence of best practice to inform commissioning Best practice to inform commissioning - primary prevention Best practice to inform commissioning - early intervention Best practice to inform commissioning provision of ongoing support Other relevant national guidance for commissioners Unmet needs and service gaps

7 12. Joint Commissioning Plan outcomes and priorities Principles to inform domestic violence commissioning Outcomes to inform domestic violence commissioning Citywide strategic outcomes for domestic violence Summary of service-level outcomes for stakeholders Prevention: outcomes for survivors, perpetrators, children, young people, communities Early intervention: outcomes for adult survivors Early intervention: outcomes for children and young people Early intervention: outcomes for perpetrators Provision of services: outcomes for adult survivors Provision of services: outcomes for children and young people Provision of services: outcomes for perpetrators Joint commissioning plan from 2011 outcomes and priorities Recommendations for future needs assessment work Key contacts and partnership structure 2010/ Appendix 1: List of consultees Appendix 2: Statutory and legislative context Summary of criminal legislation relevant to domestic violence intervention Summary of civil legislation relevant to domestic violence intervention Appendix 3: Domestic Violence National Occupational Standards (NOS) Appendix 4: Community Safety Partnership Domestic Violence Action Plan..301 References

8 Domestic Violence Needs Assessment 2010/11 1. EXECUTIVE SUMMARY 1.1 BACKGROUND AND SCOPE Brighton & Hove is taking forward three Intelligent Commissioning Pilots on domestic violence, alcohol-related harm and drug-related deaths, and this Needs Assessment has been undertaken to inform the domestic violence pilot and the move towards an Intelligent Commissioning Framework in the city. a These three areas are all priorities for the council and partners under the major priority to reduce crime and improve community safety in the city s Sustainable Community Strategy, and they all impact extensively upon the health and wellbeing of residents and visitors and upon the demand for, and costs of, services. Understanding what domestic violence is and how it impacts on individuals, families and communities, is crucial to ensuring that high-quality and cost-effective services are delivered in Brighton & Hove. Domestic violence is a term that describes intentional, ongoing, controlling and coercive behaviours by one person, using emotional, financial, physical and sexual violence, stalking and harassment, to ensure power and control over another, with whom they have, or have had, an intimate or family relationship. Domestic violence originates from a sense of entitlement, which is rooted in patriarchal traditions and supported by sexist, racist, disablist, homophobic, biphobic, transphobic and other discriminatory attitudes, behaviours and systems that maintain and reproduce inequality. The scope of this needs assessment is informed by this understanding and adheres to the local and national definition of domestic violence, introduced for monitoring purposes: Any incident of threatening behaviour, violence or abuse, [psychological, physical, sexual, financial or emotional], between adults who are or have been intimate partners or family members, regardless of gender or sexuality. b This includes issues of concern to Black and minority ethnic (BME) and other communities such as so-called honour based violence, female genital mutilation (FGM) and forced marriage. The scope of this needs assessment also extends to children and young people affected by domestic violence, where data is available. c Dealing with domestic violence in the city has historically been the responsibility of the Community Safety Partnership which, whilst leading a multi-agency response and prioritising domestic violence, has emphasised the development of good practice predominantly in the criminal justice sector. However, domestic violence impacts across the city s priority outcomes within the Sustainable Community Strategy, in particular: promoting enterprise and learning; reducing crime and improving safety; improving health and well-being; strengthening communities and involving people; improving housing and affordability, and providing quality a Intelligent Commissioning is a mechanism which enables the long term and widest perspective for the city to be taken in balancing needs, priorities and resources. The intelligent part of the process refers to a commissioning approach based upon strong evidence and an understanding of need, joining up activities behind key outcomes, and harnessing the knowledge and experience of citizens, communities, staff and partners in the design, production and delivery of services and solutions. The three pilots are intended to inform the Intelligent Commissioning Framework for the city, which aims to enable the council with its partners to better meet the needs of residents within reducing resources in the most effective way. b An adult is defined as any person aged 18 years or over. Family members are defined as mother, father, son, daughter, brother, sister, and grandparents, whether directly related, in-laws or stepfamily. c For further information about the nature of domestic violence behaviour see the Domestic Violence Needs Assessment 2010/11, section

9 advice and information services. d Therefore, reducing and preventing domestic violence is essential if we are to make any progress on: achieving equality in the city; reducing homelessness; improving people s physical and mental health; reducing the harm caused by alcohol and substance misuse; reducing the number of children in care and living in poverty; reducing the levels of offending in the city; and minimising its impact on employers and on the local economy. This Needs Assessment is the first time such a comprehensive, city-wide evidence-base for domestic violence has been established, owned and agreed by such a large number of partners. This has resulted in greater collaboration and responsibility for achieving the shared outcomes and commissioning priorities set out below, and greater accountability for addressing domestic violence across a wider range of public sector partners, and for creating positive change for local people. A coordinated community response to domestic violence that involves strategic and operational multi-agency intervention is essential, if we are serious about effectively addressing the extent of domestic violence and reducing and preventing the harm it causes in the short and longer term. 1.2 KEY ISSUES AND GAPS Prevalence summary of national data Domestic violence is widespread throughout every socio-economic group, and occurs citywide across all neighbourhoods and communities. Although the incidence of domestic violence varies only marginally when analysed by geography, class, age, ability, sexuality, ethnicity and nationality, such issues do affect risk and the severity of violence, and the experience of survivors from these groups is compounded by additional barriers to seeking help. Crime statistics and research show that domestic violence is gendered; that is, most perpetrators are male and most victims are female, and the gender of both victim and perpetrator influences behaviour, risk, and the severity of harm caused. Nationally: More than one in four women will experience domestic violence in their lifetime after the age of 16; this is equivalent to approximately four and a half million women. Between six and ten percent of women suffer domestic violence in a given year. There were over one million female victims of domestic violence in England and Wales in the last year. The vast majority of domestic violence is perpetrated by men on women. In 2009/10, women were the victim of over seven out of ten (73 per cent) incidents of domestic violence. 1 According to the British Crime Survey, 45 per cent of women and 26 per cent of men aged could recall being subject to an incident of domestic violence (abuse, threats or force), sexual victimisation or stalking at least once in their lifetime. e Domestic violence accounts for one in seven (14 per cent) of all violent incidents in England and Wales; repeat victimisation accounts for 66 per cent of all incidents of domestic violence and 21 per cent of victims have been victimised three times or more. Women are at greater risk of repeat victimisation and serious injury; 89 per cent of those suffering four or more incidents are women. 2 d Brighton & Hove Sustainable Community Strategy is available at e Closer analysis of the data, accompanied by comparisons with other research, indicates emergent gender differences in terms of the experience and consequences of domestic violence that do not support a hypothesis of gender parity and instead show that women are the overwhelming majority of the most heavily abused group. 9

10 200,000 children in England live in households where there is a known risk of domestic violence, 3 and a 2009 national analysis of Serious Case Reviews found evidence of past or present domestic violence in over half (53 per cent) of cases. 4 In the UK it is estimated 66,000 women are affected by female genital mutilation (FGM); 24,000 young girls are at high risk of FGM, and as many as 6,500 girls are at risk of FGM within the UK every year. 5 The UK Forced Marriage Unit received 1,682 reports of forced marriage in 2009, 86 per cent involved females and 14 per cent involved males. 6 On average two women each week are killed by a current or former male partner: This constitutes around one-third of all female homicide victims. 7 In one week - 30,000 women will experience intimate partner violence. 8 10,000 women will be sexually assaulted. 9 2,000 women will be raped women will be at risk of being forced into a marriage. 125 girls will be at risk of FGM. Domestic violence forms part of a continuum of violence that many women and children experience at some point in their lives, including rape, sexual violence, stalking, sexual harassment, trafficking and sexual exploitation, f and these experiences also need to be considered when commissioning and delivering services for women and children locally. Globally, violence against women and girls is a problem of pandemic proportions: 20 per cent of women report that they have experienced stalking at some point since the age of 16, 11 and 3.7 million women in England and Wales have been sexually assaulted since the age of per cent of children under the age of 16 report experiencing sexual abuse during childhood (11 per cent of boys and 21 per cent of girls); per cent of all rapes recorded by the police are committed against children under the age of Across the UK there are upwards of five million adult women who experienced some form of sexual abuse during childhood per cent of women in prostitution report physical abuse in the family, and 45 per cent report familial sexual abuse. Between per cent of women in prostitution entered before they were 18; the average age women become involved in the sex industry is 12 years old. 16 Although there is no agreed estimate of the scale of sex-trafficking in the UK, in 2003 the Home Office estimated 4,000 women were trafficked into the UK for sexual exploitation. There is unanimous worldwide opinion that these numbers will have since risen. 17 A study of 207 women trafficked into prostitution found that 95 per cent suffered physical and sexual abuse, with the same number experiencing symptoms of trauma similar to those suffered by torture victims. 18 f The internationally agreed definition of trafficking is contained in The UN Optional Protocol on Trafficking in Human Beings (the Palermo Protocol). This acknowledges that trafficking and prostitution are intrinsically linked, and rejects the false distinction between free and forced prostitution. The Protocol states that the consent of the victim is irrelevant; that facilitating the movement of women for prostitution within (as well as across) borders constitutes trafficking, and that governments have a responsibility to tackle the demand for prostitution. 10

11 1.2.2 Domestic violence in Brighton & Hove High levels of domestic violence in the city reflect national trends, although domestic violence continues to be under-reported locally. Most domestic violence is experienced by women and perpetrated by men; a significant minority of men also experience domestic violence; it is experienced by transgender people, and it also occurs across heterosexual, lesbian, gay and bisexual relationships. If not prevented, it often escalates in intensity and severity, and can lead to the victim s death. Factors that increase risks include the gender of the victim and perpetrator; the presence of rape, stalking and controlling behaviour; the co-occurrence of child abuse; isolation and barriers to accessing services; separation, and child contact disputes. Domestic violence also presents a risk of harm to children and young people, either witnessing domestic violence whilst growing up, being directly abused themselves, or by experiencing domestic violence in their relationships as teenagers. g Girls experiencing teen relationship abuse experience greater incidence rates, more frequent sexual violence and severe abuse, and suffer more negative impacts including higher levels of coercive control, compared with boys. 19 Domestic violence causes significant health problems, like physical injuries, self-harm, eating disorders, attempted suicide, depression, anxiety and other mental health problems, sexually transmitted infections and substance misuse. The consequences of domestic violence also include poverty, unemployment and homelessness, youth offending and teenage pregnancy. It impacts on employers and on the local economy by limiting victims ability to access education, training and employment; it decreases the productivity of employees, and increases absenteeism and staff turnover. The cost of domestic violence to local residents is significant. It has a serious and lasting impact on a victim s sense of safety, health, well-being and autonomy, and can severely restrict victims ability to fully participate in society. In Brighton & Hove: Over 25,000 women and nearly 2,000 men will experience repeat domestic violence at some point as adults (based on British Crime Survey findings). Over 200 women experience domestic violence each week and nearly 11,000 women experienced domestic violence in the past year (based on British Crime Survey findings). Nearly 55,000 women will at some point in their lives also be a victim of violence including rape, sexual assault, sexual harassment, female genital mutilation, forced marriage, crimes in the name of honour, trafficking and sexual exploitation. Based on the local LGBT population, one in four - 8,750 lesbians, gay men, bisexual and transgender people - will experience abuse at some point in their lives. Referrals to local services in Brighton & Hove, in 2009/10: Criminal justice system There were 3,359 police recorded domestic violence crimes and incidents, an increase of six percent on the previous year: 1,132 were recorded as crimes and 321 (28 per cent) resulted in a charge. ggg A 2011 research into practice review, commissioned for the Directors of Children s Services, sets out the evidence around prevalence effects on children s development, the interaction with parenting and children s health and wellbeing, and principles and key steps towards developing effective service responses by Children s Services; see Stanley, N., (2011) Children Experiencing Domestic Violence: A Research Review, 11

12 Of all the domestic violence crimes and non-crime incidents reported to the police, in 82 per cent of incidents the perpetrator was an intimate partner of the victim and in 16 per cent the perpetrator was a family member. 78 per cent of domestic violence recorded offences were committed against women and 22 per cent were committed against men. This does not take into account dual arrests or counter allegations, and cannot be used to extrapolate who is the primary aggressor in domestic violence cases. Most women who report domestic violence to the police are aged 20-29; comprising 35 per cent of female victims. In comparison, most men who report domestic violence to the police are aged 30-39; 32 per cent of male victims. The majority of sexual offences (17 out of 18) that are flagged as domestic violence by the police are committed by an intimate partner. 77 per cent of domestic violence offences which are recorded by the police as being committed under the influence of either alcohol or drugs are committed against women. The Crown Prosecution Service had 326 finalised prosecutions of which 234 (71 per cent) were successful. 43 convicted male perpetrators were sentenced to attend the local probation service Integrated Domestic Abuse Programme (IDAP); 32 men started on the programme during the year, and 15 men completed the programme. There were 125 high-risk cases dealt with at the Multi-Agency Risk Assessment Conference (MARAC), with the average per month greater than the previous year. The number of repeat cases during these 12 months has increased to 21 (17 per cent). Other services In 2009/10, 277 domestic violence referrals were made to the council Housing Options service; 116 individuals were offered advice and assistance, and 72 cases of homelessness were prevented. In 2009/10, 102 homeless applications were made to the council housing department due to domestic violence, of which 32 were accepted. In 2009/10, homelessness was prevented using the Sanctuary Scheme in seven domestic violence cases (between April - September 2010, homelessness has been prevented in 11 cases using the Sanctuary Scheme). Domestic violence is the most common principal reason for children having a child protection plan in place locally. In March 2010, 35 per cent (126 out of 365) of children s child protection plans in Brighton & Hove cited domestic violence as the principal reason. In a three month period, 40 children living with high-risk domestic violence were discussed at a Multi-Agency Risk Assessment Conference (MARAC). In December 2008 a local study of 184 teenage mothers found that 59 of them had experienced domestic violence. In 2009/10, 116 of 264 young people (44 per cent) assessed by the Youth Offending Service had been abused, and 42 per cent had experienced domestic violence at home. 12

13 Rise supported 488 individuals from Brighton & Hove and a significant number of these engaged with more than one Rise service. h Of these service users, 10 per cent had a substance misuse problem, 54 per cent had mental health problems and 10 per cent were disabled. o Rise received 2,292 calls from Brighton & Hove to the local domestic violence helpline. o 52 women with 46 children were supported in the local refuge and 13 women used the resettlement service. o 67 local women were supported through the community outreach service. o 30 women received counselling support. o 110 children were supported by the children s service. o 60 adults and 23 children were supported through group work programmes. o 231 adults were supported by the Independent Domestic Violence Advisory (IDVA) service that provides advocacy for high-risk survivors. 70 male perpetrators were referred to the Living Without Violence community perpetrator programme. Of these, 47 men were assessed; 34 men attended the group programme, and 16 men completed the programme in that year. In the same year 51 women survivors were supported by the parallel women s safety service offered to the victims of perpetrators. Further detail and analysis of the above data, together with information about referrals to other services, is available in the Domestic Violence Needs Assessment 2010/11, Sections 4 and Cost of domestic violence to the city and local investment into its prevention The cost to Brighton & Hove of responding to domestic violence is conservatively estimated to be between 30 million and 32 million per annum for key public services, which, if combined with the estimated human and emotional costs, increases to between 118 million and 132 million per annum (see 3.10 for more information). This approximates as: 7m physical and mental healthcare costs. 5m criminal justice costs. 2m housing and social care costs. 18m housing, civil legal, employment and other costs, and 100m per annum in human and emotional costs. In contrast, the level of investment into domestic violence prevention, early intervention and into the provision of domestic violence services locally is relatively low; indeed, the majority of investment into dedicated services locally comes from external sources (whether through shortterm government funds or charitable trusts). Conversely, money is spent across universal and mainstream services on picking up the pieces, and responding mostly to cases deemed to be high-risk, at the expense of investment into early intervention and domestic violence prevention. Obtaining a full picture of the investment into addressing domestic violence locally is difficult because this is not identified explicitly in existing budgets. A full breakdown of what local services know about their investment into domestic violence prevention and provision, and where the gaps are, is available in the Needs Assessment (see 6.2). h Rise operates in Brighton & Hove and across West Sussex, and also provides a refuge service which forms part of the national network of emergency provision for women and children. The total number of referrals to Rise in 2009/10 were 1,753, of which 1,004 individuals were able to be provided with a service. 13

14 In summary, local investment into addressing domestic violence can be broken down as follows (this includes facilitating the allocation of national government grants to local specialist services): Multi-agency strategy coordination = 41K; Domestic violence prevention work = 0; Addressing early intervention = 160K (which includes contributions towards the local helpline, community outreach and health-based independent advocate); Provision = 1,310K (which breaks down as 1,097K into emergency and high-risk cases, mainly the Independent Domestic Violence Advisory service, the Multi-Agency Risk Assessment Conference system and police costs, and 213K into general provision, mainly for perpetrator services). For a further breakdown of these figures, see View of service users and of professionals The city has a well-established network of partnership strategic and operational groups which direct and manage work on domestic violence. However there are less formalised mechanisms for regularly obtaining service user and survivor feedback on local services, and specific consultations were recently undertaken in Brighton & Hove with survivors who had used services in the last twelve months, which informed the development of this Needs Assessment. Service users and professionals felt it is a priority to continue to focus on increasing survivor safety whilst also challenging and holding perpetrators to account, increasing awareness about all forms of domestic violence, and reducing social tolerance through work in schools and communities. While service users welcomed and highly valued the support offered by specialist domestic violence services in the city, they had little trust or confidence in local public services response to domestic violence. In particular, they said they felt public services failed to identify and respond to their needs; made them feel excluded, isolated; judged and blamed for the violence, and further hampered their ability to seek-help. Service users recommendations to improve service responses have informed the resultant commissioning priorities and action plan. Professionals also identified that it should be a priority to establish the principle of preventing and reducing domestic violence as core business for all public agencies; to get the balance of investment right between dealing with high risk cases and prevention and early intervention; and to focus on workforce development to enable frontline staff to identify early on when domestic violence is happening and how best to respond, when delivering services to individuals and families. There is also an identified need to improve local understanding of, and response to domestic violence in Black and minority ethnic communities and amongst disabled people. For further information about local consultations to gather views of service users, the public and professionals, see sections 8 and Gaps in data collection, meeting needs and services The primary source of data on domestic violence is the criminal justice system, nationally and locally, and some data also comes from local support services, thereby providing an indication of demand for their service. However, only a minority of incidents of domestic violence ever go through the criminal justice system, so relying on this as the primary source of local data has significant drawbacks due to under reporting and under recording. 14

15 Data collection is further complicated by the fact that whilst there are many survivors and perpetrators in contact with services other than the justice system, such as housing, education, social care, health and the voluntary sector, many do not disclose that domestic violence is taking place because they continue to experience stigma associated with the abuse and seeking help and/or because they do not feel comfortable to divulge the information. Many services are inaccessible to, or unsafe for different groups of survivors; and even when survivors or perpetrators do disclose domestic violence, many services still do not have systems in place to effectively identify, record, and respond to domestic violence. There are no statistically significant regional variations between domestic violence, sexual violence and stalking across the country. Therefore, where local data exists, this has been combined with extrapolation from national data to provide a fuller picture of local prevalence and issues. However, the need for accurate and consistent domestic violence data across statutory, community and voluntary sector organisations, which includes disaggregated data across equality strands in every public service, is a significant gap that needs to be addressed in relation to domestic violence data. Particular gaps in data and information: Data collection is not standardised across all agencies to provide consistent, comparable monitoring data between agencies. Many key services do not know how many of their service users are experiencing or perpetrating domestic violence. Some agencies are not equipped to effectively identify and collect data on identifying the primary victim and perpetrator, despite national guidance available for local areas to address this issue. Very few services are monitored in terms of achieving outcomes, to know if they are successful in increasing survivor and child safety and holding abusers to account when they work with individuals and families affected by domestic violence. There is a lack of data for monitoring outcomes for service users in order to measure the social and financial value of interventions. Information about the needs of those who are experiencing domestic violence but are not accessing services is limited to recent focus groups with survivors, but information about how survivors experience local services, or why they do not use services, is not consistently available to commissioners on an ongoing basis. There is a particular lack of information available locally on the experience of survivors from Black, Asian Minority ethnic and refugee communities, including Travellers and Gypsies, and of the experience of disabled survivors. Particular gaps in meeting needs and providing services: Agencies are not equipped or resourced to identify and respond effectively to all forms of domestic violence; in particular to sexual violence, emotional abuse, stalking, forced marriage, so-called honour-based violence and FGM. Many services do not have routine procedures in place for front-line staff to conduct routine, safe enquiry about domestic violence, and to identify survivors and perpetrators, in order to encourage early identification and an effective initial response. There is a significant gap between an organisation s strategic and policy priorities and what happens in terms of delivery in response to domestic violence. There is also a gap in terms of a partnership process to learn lessons after a homicide has occurred locally. 15

16 There is no systematic process in place for services to obtain feedback about the service from survivors. The local NHS, justice system and local authority response to domestic violence needs significant service improvements, according to feedback from survivors who participated in recent consultations through local focus groups (see 8.7). Many services are not fully accessible to meet the needs of survivors from BAMER communities, disabled survivors and LGBT survivors. Few services have the capacity to meet the needs of victims who have experienced domestic violence and have additional support needs, for example, substance misuse and/or mental health issues. Therefore, the most vulnerable and isolated victims often end up in the most high-risk situations. There is an unmet need for secure and long-term specialist support and advocacy for adult women survivors of domestic violence, and support for children and young people, to help them recover from domestic violence. There is a particular gap in targeted interventions for young people being abusive, or experiencing abuse, in their own teenage relationships. There are significant gaps in prevention and early identification work; instead more attention has been paid to responding to crisis and high-risk intervention. For example, there is no longer any systematic programme of work taking place on prevention education in schools across the city. There is also a lack of group work to promote resilience and empowerment amongst women and girls as a preventative measure. A greater understanding is needed locally by agencies that interventions with women and men need to be separate, safe and different for victims and for perpetrators, proportionate to need and risk. For example, services for male victims should be provided in a separate location to women s services; include a robust screening tool to discern between perpetrators and victims; and meet the needs of heterosexual, gay, bisexual and transgender survivors. Brighton & Hove has developed a foundation for delivering a coordinated community response to domestic violence, which needs further development and embedding into local agencies practice across the city. Greater attention is also needed on holding perpetrators to account across all agencies. 1.3 JOINT COMMISSIONING PLAN FOR 2011 OUTCOMES AND PRIORITIES Principles to inform domestic violence commissioning and service delivery The following principles draw on best practice in addressing domestic violence and are consistent with national strategies, standards and plans (for further information see Section 10). Domestic violence is widespread throughout every socio-economic group and therefore occurs citywide across all neighbourhoods and communities. Understanding that domestic violence is gendered, and is caused by the misuse of power and control, is central to effective intervention and prevention. Domestic violence is a cause and consequence of gender inequality; and although not all domestic violence occurs within a context of traditional power relations, perpetrators behaviour stems from a sense of entitlement, supported by sexist, racist, homophobic, biphobic, transphobic and other discriminatory attitudes, behaviours and systems that maintain and reproduce inequality. 16

17 Domestic violence is learned, intentional behaviour. Responsibility for domestic violence lies with the perpetrator, and it is the responsibility of the perpetrator, community and state institutions, not survivors, to reduce and prevent domestic violence from occurring. Survivors safety must be the over-riding priority in all services, and institutional change should be influenced through independent advocacy. Survivors do not experience violence in silos and neither should agencies respond in silos: accessible and holistic provision is needed; all forms of domestic violence need to be addressed by services, alongside other forms of violence against women that survivors may have experienced. How services are delivered is as important as what is delivered. An options-based approach to safety and support planning is most effective; one that supports survivors, increases their choices, builds on positive coping strategies, and enables their empowerment and selfprotection. There is a strong correlation between domestic violence and child abuse and the presence of one should always trigger enquiry to the other. Domestic violence frequently co-exists with alcohol and substance abuse, and mental health problems, although these are rarely causal factors; the frequency of the co-existence of these issues means that risk assessments and interventions should always screen for and address all three issues. Teenage partner violence requires a coherent approach to prevention, which recognises specific forms of violence (physical, sexual, emotional) and that the prevalence and negative impacts are significantly higher for girls. Ongoing mechanisms are needed for the involvement of survivors in the development, delivery and review of local services. Invest to save: the cost of domestic violence is significant and reinvestment and resource pooling is needed so that prevention and early intervention approaches are prioritised alongside crisis and high-risk responses. Work in partnership is needed in accordance with the coordinated community response model for intervention; however, multi-agency working cannot be undertaken at the expense of service improvements in individual agencies. Domestic violence is widespread and impacts across city priorities; so must be seen as core business for public services and partnerships, and for commissioning, strategy, policy and service improvement work in the city Outcomes framework: citywide strategic outcomes Measuring outcomes is the only way commissioners can be sure that changes for stakeholders are taking place. Any domestic violence commissioning locally should focus on delivering the following outcomes framework to achieve a coordinated community response model to reduce and prevent domestic violence. The recommended outcomes framework to inform domestic violence commissioning includes citywide strategic outcomes and specific outcomes for identified stakeholders (victims, children and young people, perpetrators, and communities). The city s aim is for Brighton & Hove residents and communities to be free from all forms of domestic violence, through prevention, early intervention and provision, by achieving the following outcomes: 17

18 1: An increase in the safety of survivors (adults and children) through an optionsbased approach that maximises safe choices available and reduces the harm caused. 2: A reduction in the risk of harm from perpetrators through holding abusers accountable for their behaviour in such a way that reduces risk and which not only acts as a future deterrent for them, but also as a deterrent to potential abusers. 3: A decrease in social tolerance and approval of domestic violence, through awareness raising and challenging inaction by individuals, communities and organisations. 4: An increase in the knowledge and skills of children, young people and adults about forming healthy relationships, through prevention education and learning, so that they are better equipped to form relationships based on equality and respect, mutual understanding, shared power and a commitment to non-violence. The above outcomes should inform any future commissioning in the city and future work to improve local services responses to domestic violence. Embedding these outcomes and accompanying service-level outcomes into the City Performance Plan and into performance compacts across city services and partnership will provide a framework of accountability that in future will focus on how well services are reducing and preventing domestic violence and creating positive change for local people Outcomes framework: service-level outcomes for stakeholders The positive changes needed by different groups as a result of improved responses to domestic violence by local communities, survivors, children and young people, and perpetrators have been identified from extensive local consultation. It is anticipated this more detailed framework of service level outcomes for different stakeholders will be achieved through primary prevention work, early identification and response, and the provision of ongoing support and risk reduction. Primary prevention Outcomes for survivors, perpetrators, children and young people, and communities, to be achieved through a focus on primary prevention: Increased public awareness and knowledge of domestic violence and its impact. Increased knowledge and awareness within communities of domestic violence as it impacts on different groups. Reduced stigma and less tolerance and social acceptance of domestic violence within communities. Increased knowledge of rights to access services for those affected by domestic violence and of the right to live violence-free lives. Increased awareness of the options and resources available for communities and individuals affected by domestic violence. A positive change in people s perceptions of what is acceptable behaviour within relationships. Increased education on healthy relationships and the skills to sustain safe and equal, violence-free relationships. Increased knowledge of rights by women and girls in terms of gender equality. Early intervention Outcomes for survivors to be achieved through a focus on early intervention: 18

19 Improved survivors ability to speak freely about domestic violence by creating a safe environment that leads to an increase in their physical and emotional safety: o Improved ability to realize and name their experience as domestic violence. o Increased understanding that domestic violence is not their fault. o Feeling of improved response to their experience of domestic violence from professionals / family / community members which includes being treated with dignity and respect; feeling listened to, believed and not judged. o Increased knowledge of options and help available. o Improved access to domestic violence services and support when required. In addition, for survivors who are parents: Increased understanding of the impact of domestic violence on themselves, their family and children, and on their role as parents. Increased knowledge of where and how to access support for them as parents. Increased knowledge of where and how to access support for their family / children. Outcomes for children and young people from early intervention: Improved ability to speak freely about domestic violence by creating a safe environment that leads to an increase in their physical and emotional safety. o Teenagers experiencing domestic violence to realize and name their experience as domestic violence. o Increased understanding that domestic violence is not their fault. o Feeling of improved response to their experience of domestic violence from family, peers and professionals which includes feeling that they are treated with respect, listened to, believed and not judged. o Increased knowledge of options and help available. o Improved access to domestic violence services and support when required. Outcomes for perpetrators from early intervention: Increased responsibility for their actions and behaviour, and ability to manage and reduce the risk they pose to their victims and to stop further violence. o Increased self awareness and recognition that their behaviour is abusive and to name it as domestic violence. o Increased awareness of where to get help to change their abusive behaviour. o Increased awareness of the impact of domestic violence on their victims. o Reduced risk from and improved emotional well-being of teenagers abusive to partners / parents. In addition, for perpetrators who are parents: Increased understanding of the impact of their violence and abuse on the family and on children. Increased knowledge of where and how to access help for themselves as parents to change their behaviour and to stop further violence. Provision of support and risk reduction Outcomes for survivors to be achieved through the provision of services: Increased physical safety and freedom from harm caused by domestic violence. o Reduced risk of further harm. o Feel safe in their environment. o Freedom from immediate harm and in the longer term. Increased emotional safety, social and personal well-being following domestic violence. o Increased feeling of trust and belonging. o Improved ability to build supportive relationships. o Improved emotional well-being. 19