Findings
Potential referring agencies
Contact was initiated with a number
of statutory agencies and voluntary agencies with which they have close links,
that are likely to be important sources of referral if a programme is initiated
(see Appendix 3 for details). For some of these agencies, work in domestic violence
is either a central or very significant area of work (for example the Police and
Social Services Department). For others, it arises out of the nature of the work
undertaken in providing universal services to families, women and children, for
example primary health care interventions, or through specialised services, like
mental health services and family mediation in relation to separation. Workers
from any of these agencies may be the first people outside of the family to suspect,
become aware of or be told about violence towards women and children. Staff in
these agencies are, therefore, critical in recognising and responding to domestic
violence; as well as constituting a source of referral for a perpetrators’ programme,
they may be important avenues to information and advice for women, children and
men. Approaches were made to both front line practitioners whose work includes
domestic violence, and personnel able to offer an important overview of any strategic
or policy development within the agency related to domestic violence.
As well as being a source of information for the feasibility study, this part
of the consultation process was important in allowing some discussion of the role
of agencies and professional interventions in tackling domestic violence and in
gaining an impression of current practices. As well as establishing what baseline
data is available, it has enabled an exploration of attitudes and views, and the
fears and anxieties that such work often generates (Humphreys, 2000).
Overall, contact with agencies has
revealed considerable interest in and support for the proposed initiative. There
was already a high level of awareness of domestic violence and a dominant view
expressed was that work needs to be undertaken with perpetrators, so long as
it does not dilute work currently being undertaken with women and children. Given
the range of agencies involved, it was not surprising that there was some diversity
of responses. Although there were differences in perspective, related primarily
to whether domestic violence was seen as a core or peripheral area of work for
the agency or individual concerned, there were also discernible and clear areas
of agreement. These suggested a strong commitment to the Domestic Violence Partnership
and work in this field and may also provide the firm inter-agency foundation that,
should a programme proceed, it would require.
It may also be significant to note for this and other work related to domestic
violence, that some practitioners were struggling to translate increased awareness
of domestic violence into their practice. They described worries about ‘getting
it wrong’ or ‘making the situation worse’.
Definitions of domestic violence
and policy developments A variety
of definitions was being used in policy and practice across and sometimes within
agencies. This latter situation arose where an agency is working with several
different legal frameworks and/or policy guidelines, for example criminal justice
and child protection. Representatives of those agencies involved in child
protection subscribed to the definition of domestic violence used in inter-agency
child protection procedures and other agencies to that in the City Council Policy
on Domestic Violence (see Appendix 3). In general, there seemed to be a high degree
of consensus in the direction of a broad definition, that recognises the significance
of gender and encompasses not just physical violence, but emotional, sexual and
economic violence in the context or aftermath of intimate relationships.
The role of the voluntary sector,
of survivors of domestic violence and the agencies run by and for them, in raising
awareness of the issue cannot be overestimated. This has resulted in a plethora
of longer term and more recent initiatives at national and local levels and means
that domestic violence has now taken its place on strategic and policy agendas
and was a significant operational priority in the majority of agencies consulted.
In all of the statutory and many of the voluntary agencies this work is progressing,
although discussions and developments are at varying stages. Key changes have
been implemented in some agencies and are pending in others. For example, the
changes referred to earlier in relation to policing of domestic violence; the
introduction of Public Protection Panels in local authorities and Public Protection
Teams in Probation; the incorporation of domestic violence in child protection
guidance; the inclusion of domestic violence in local strategies under the Crime
and Disorder Act; the inclusion of domestic violence in risk assessment frameworks,
and so on. Since agencies each have their own organisational structure, co-ordinating
such work is complex. It is notable that the work of the Domestic Violence Partnership
in providing a focus and common reference point was frequently acknowledged by
participants in the study, and exemplifies the pivotal role of partnerships in
identifying and trying to fill gaps in provision (Hague and Malos, 1996).
Screening for domestic violence
and work currently being undertaken with male perpetrators of domestic violence
Some of the agencies contacted
were actively and formally screening for domestic violence; others were considering
doing so. More generally, agencies believed that increased awareness has contributed
to higher levels of recording than previously. As indicated in the section on
existing data, this means that the exact parameters of the problem cannot accurately
be charted and there was some frustration at the absence of a common, centralised
database. However, all the agencies consulted are clear that they do have contact
with male perpetrators of domestic violence, directly or indirectly, and/or with
women and children living with or trying to survive the consequences. The ways
in which and the degree to which this becomes evident varies, related to the nature
of work and statutory responsibilities of the agency concerned. The Police and
Probation Service, for example have contact with men alleged to have committed
and those convicted of offences of domestic violence. They may also become aware
of domestic violence through contact stemming from other offences. Where men have
convictions for domestic violence, they may be referred to the West Midlands Domestic
Violence Perpetrators’ Programme. Where domestic violence is an issue but not
the index offence, group and individual work with offenders has drawn on the kind
of materials and interventions used in the West Midlands Programme. However, for
probation officers, there is always a danger that, where domestic violence is
not the index offence, it becomes marginalised in the work undertaken.
Drug and alcohol related services were also significant. Men may seek advice because
they believe drugs and alcohol are implicated in their abusive behaviour and workers
sometimes become aware through individual or group work that the men they are
working with are perpetrators of domestic violence. In addition, these services
work with women who are or have been the subject of domestic violence.
Health service professionals, including clinicians, are a particularly important
point of contact for women and children affected by domestic violence (Williamson
2000). All community and hospital based services, including mental health services,
note increased recognition and possibly increased levels of violence. Active efforts
are being made around policy development, the co-ordination of services, information
sharing, data collection and consideration of screening. It was noted that it
is important to be inclusive of associated professionals like dentists, pharmacists
and opticians.
Health visitors find that whilst domestic violence is rarely directly named to
them, they may become aware of it through their relationships with women. Though
they have very little contact with men generally and male perpetrators in particular,
they are aware that they sometimes accompany women to appointments, to speak for
them. Men are more likely to raise alcohol use as a problem for them than domestic
violence. Domestic violence is a criterion that may lead to increased levels
of visiting and in some circumstances this will lead to a conference under child
protection procedures. Within the health visiting service, consideration was being
given to the recommendations of a Health Visiting Association Policy Briefing,
Domestic Violence: A Framework for Good Practice (Peckover 2000).
Within the work of Social Services Department Children and Families Teams, domestic
violence is a prominent issue, particularly in relation to child protection. As
the relationship between male domestic violence and child abuse has been increasingly
recognised, it has been addressed more explicitly in policy and guidance, for
example in the process of child protection inquiries as well as in the assessment
of children in need (DOH, 1999; DOH, 2000), and has become more visible. Work
with men in this context, the majority of whom do not have convictions, proves
demanding. Characteristic minimisation and denial on the part of perpetrators
means that they rarely co-operate, and women may have access to few resources
to escape. Where child protection procedures are initiated, great care is taken
over safety issues for women and children. However, workers also described feeling
frustrated by the lack of local resources, like a perpetrators’ programme, to
tackle men’s violence without the increased pressure on women that the child protection
system involves.
An impression from both Social Services and Probation representatives is that,
although men should not be referred for anger management as a response to domestic
violence, this does sometimes, out of desperation, happen. Several agencies raised
unsolicited concerns about a specific voluntary organisation, not based in this
area, but offering services to perpetrators of domestic violence.
Work that needs to be undertaken
with non-convicted perpetrators All
individuals and agencies consulted were of the opinion that work needs to be undertaken,
in order to place the responsibility for violence where it belongs and to try
to change the behaviour of perpetrators, rather than women and children. However,
there were a number of concerns and provisos that were attached to the comments
made.
Many of these concerns arose from
an appreciation of the complexity of the issues involved and the broader social
context of domestic violence and male violence more generally. Within the interviews,
participants frequently referred to issues of gender, masculinity, power and control
as being central to the perpetration of violence. Some front line workers described
the apparent ‘normality’ of levels of physical, emotional and sexual violence
in the treatment of young women by young men and about how this is perpetuated
in media stereotypes. Within interviews some participants also felt that post-separation
violence, including forms of stalking, is prevalent and that statutory intervention
can make the situation more risky for some women and children. Even where there
was a belief that something should be done, therefore, the sheer prevalence of
domestic violence felt overwhelming, and consequently generated uncertainty about
what might be effective and how effectiveness could be evaluated.
There were questions also, given knowledge
of how denial and minimisation on the part of a perpetrator are invariably inherent
in domestic violence, about what will motivate men who are not convicted to attend
a group, about how their motivation will be assessed, and about what sanctions
there can be for dropping out of participation. Do we know enough about what works?
(See section on perpetrators, below).
Alongside this, and the most pressing
worry expressed by participants, is their profound concern about women and children.
What about the unintended consequences of a programme for individual women and
children? Will a programme increase risk through the escalation of violence or
make it more hidden? For women more generally, the belief was expressed that whatever
is considered should not take away from, or influence the future development of,
services for women and children. How can these be safeguarded? Participants also
felt that a programme should in no way dilute the efforts of the Crown Prosecution
Service or the criminal justice system.
What emerged from the individual and
group interviews is that ‘something is not necessarily better than nothing’ in
this area of work. Whilst there is explicit support for a programme, this is contingent
upon adherence to the best practice guidance and research available, with evidence-based
standards no less exacting than on programmes for convicted offenders. The process
of referral, including self-referral, initial assessment and preparation for attendance
would have to be rigorously and carefully managed and no referrals should be accepted
if any criminal charges or proceedings are pending. The form and content of contract
used would be vital.
Services for women and children
Most importantly of all, there
would need to be close attention to supportive and protective measures for women
who were partners and ex-partners of men attending the group, and for their children,
as well as safeguards for the funding and development of existing services for
them. The essential elements suggested include detailed information for women
about the structure process, content and evaluation of a programme, and individual
and group support for women during and beyond their partner or ex-partner’s attendance
on a programme. It was felt that this support should be proactive, not merely
reactive, and capable of responding in times of crisis. It should be negotiated
and agreed directly with each woman involved. There would need to be effective
systems of communication within agencies, between agencies and with women. Women
should never be dependent on the man attending the programme for information about
it.
Where children are concerned, some
participants felt that children’s needs could be met through adequately supporting
women. Others thought that services should be provided directly to children, for
example through an outreach model of children’s work in refuges. Where a child
protection plan was in operation, this should address children’s needs. Older
children could be provided with information and options in their own right.
It was thought appropriate to use
or build on existing services for women and children, for example by extending
the work currently undertaken by refuges, because of the need to draw on existing
expertise.
Sources and levels of potential
referrals
As already indicated in the
data section, whilst few agencies can even estimate possible levels of referrals,
there appears to be agreement that numbers are potentially high. A more pertinent
question is about how to ensure take-up of and retention on a programme. Impressions
from within agencies like Police, Social Services, Probation and the Area Co-ordination
Teams, are that numbers of non-convicted perpetrators are high. Other agencies,
such as those within the health service, may be directly aware of domestic violence
in only a small proportion of cases at any one time, but believe that it is the
background in many more.
It is unclear whether the two specific
areas cited, Foleshill and Wood End will generate disproportionately high levels
of referral. Some individuals felt that this might be the case, whilst others
believed that social factors contribute to making domestic violence more visible
or less easy to hide in these areas. The demographic profiles of the two areas
are different. Whilst some social factors, like poverty and poor housing characterise
both, other aspects such as ethnic and age breakdown are substantially different.
Some respondents feel that both male perpetrators and women survivors of domestic
violence in Wood End are more likely to have suffered other forms of violence.
In the Foleshill area it has been suggested that the pattern of domestic violence
within some Asian families may be different, with women being abused by men other
than their partner or with one man abusing more than one woman. What is perhaps
more significant is the recognition that there are significant social, cultural,
economic, language and immigration issues that act as significant barriers for
Asian women in reporting domestic violence or seeking help. These will need to
be taken into account where Asian men are referred to a group. They are also critical
in providing appropriate support services for women and children.
Role in programme, including funding
Funding. Few participants felt
that their agencies would be in a position to pledge funding. Suggestions were
made about existing projects/programmes within which a contribution towards a
programme for non-convicted perpetrators might be justified (for example Crime
Reduction Strategy). Some agencies like Social Services may be in a position to
try to gain access to funding for individual men. Further enquiries ought also
to be made in relation to NHS funding. Sara Doolan from Action Against Crime has
offered to review the situation with regard to possible funding streams.
Developing, Supporting, Evaluating.
There appear to be far more possibilities in these areas. This includes worker
time, through secondment or donation; access to training and development within
agencies on the Domestic Violence Partnership; involvement in the management and/or
steering structure; professional support and sharing of expertise; disseminating
information; establishing and sharing data systems; provision of practical advice
re: safety of women, use of alarms etc; services for children. Specialist services,
like Alcohol Advisory Service, would consider two-way referrals, for example,
where alcohol use needed to be tackled before a man could be considered for a
perpetrators’ programme.
Summary and key points: potential referrers
There was a high level of awareness
of domestic violence and its impact on women and children amongst participating
agencies
There was consensus for a broad, gendered
definition of domestic violence
Many were cautious about assuming
that higher levels of awareness lead to better or different professional practices
Active screening for domestic violence
was not established in the policies and practices of many agencies
The inter-agency context was extremely
complex at all levels
Little work was currently being undertaken
with non- convicted men which meant that women and children are carrying the burden
Although discredited as a response
to domestic violence, it was possible that some men from the city were being referred
for anger management
There was overwhelming support for
a programme for non-convicted perpetrators
There were multiple points of access
for potential referral and the provision of information
There were sufficient potential referrals
to justify considering a programme
This was unlikely to be viable within
either of the two specified areas, but a city wide group would help meet the objectives
of crime reduction/area safety in those areas
There was much support and enthusiasm
for this venture, but it might be difficult to secure local funding
An extremely important consideration
is the provision of parallel services for women and children and to ensure that
current resources are not depleted
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