Violence against women, domestic abuse and sexual violence: national advisers annual report 2023 to 2024

The appointment and functions of the National Advisers for Violence against Women, Domestic Abuse and Sexual Violence (VAWDASV) are detailed with the VAWDASV (Wales) Act 2015. The publishing of an annual report is a requirement placed upon them. This report must detail the achievements of the National Adviser against the priorities set for the year and any other relevant activities.

As National Advisors for Violence Against Women, Domestic Abuse, and Sexual Violence (VAWDASV) for the Welsh Ministers, we are pleased to present this annual report summarising the progress and achievements in line with the objectives set out in our annual plan for 2023-24. This report reflects our work advising and assisting Welsh Ministers about pursuing the purpose of the VAWDASV (Wales) Act 2015 and related matters, particularly within the framework of the VAWDASV Act 2015, the VAWDASV strategy 2022 to 2026 and the Blueprint Delivery Model.

Overview of progress towards 2023 to 2024 objectives

The VAWDASV (Wales) Act 2015 remains at the heart of our efforts to protect and support survivors of violence, abuse, and sexual violence. Over the past year, we have continued to work predominately with authorities specified in the Act, such as local authorities and local health boards, to ensure compliance with their statutory obligations under the Act, focusing on early intervention and consistent, survivor-centred responses across Wales. The cultural shift it has driven across sectors has been invaluable in keeping these critical issues high on the public and governmental agenda.

A key element of the National Strategy’s success has been the ongoing work of the National Partnership Board, which oversees the Blueprint Delivery Model for VAWDASV. The board plays a vital role in providing strategic leadership, ensuring alignment between local, regional, and national initiatives. The Blueprint's cross-sectoral collaboration includes criminal justice agencies, health services, local authorities, and specialist third-sector organisations to develop a whole system response to VAWDASV. It is critical that this work continues, with an emphasis on ensuring sustainable funding and long-term support for the initiatives laid out in the National Strategy.

Local authorities, Local Health Boards, Fire and Rescue Authorities and NHS Trusts in Wales as listed as ‘relevant authorities’ in the VAWDASV Act 2015 must be fully engaged in a whole systems approach to preventing, protecting, and supporting victims and survivors across Wales. This requires coordinated efforts across public services, social services and health boards to ensure that all sectors are working collaboratively to provide comprehensive, consistent, and trauma-informed responses that prioritise the safety and recovery of survivors. Only through this integrated approach can we truly meet the needs of all victims and effectively combat violence, abuse, and sexual violence and ensure legal duties are met in respect of violence against women, domestic abuse and sexual violence.

The All-Wales Survivor Panel: integral to prevention, protection, and support

The establishment of the All-Wales Survivor Panel has been one of the most significant milestones in 2023-24. This panel, made up of survivors of VAWDASV from diverse backgrounds, has become an integral component of our efforts to prevent violence, protect survivors, and provide meaningful pathways to support. By centring survivor voices, the panel ensures that Wales' policies and services are deeply informed by those with lived experience, thus creating a more effective and compassionate system of care. Their insights have been vital in addressing systemic issues like inconsistent support services, barriers to accessing justice, and the challenges faced by underrepresented groups such as women from Black, Asian, and Minority Ethnic communities and those with disabilities.

Challenges faced by specialist organisations

While progress has been made, we must acknowledge the growing challenges faced by specialist organisations, especially in an uncertain funding landscape.

The demand for VAWDASV services has increased, yet many non-government, specialist provider organisations providing essential frontline services face unstable and short-term funding arrangements. This uncertainty impacts their ability to offer consistent, long-term support to survivors, especially during critical times like the current cost-of-living crisis. Many specialist organisations, particularly those working with Black, Asian, and Minority Ethnic and LGBTQ+ communities are facing mounting pressures, struggling to retain staff and expand vital services.

This uncertainty and the impact of economic challenges affects their ability to offer consistent, long-term support to survivors, especially during critical times like the current cost-of-living crisis. Many specialist organisations - particularly those working with Black, Asian, and Minority Ethnic and LGBTQ+ communities are facing mounting pressures, struggling to retain staff and expand vital services.

Economic hardship has exacerbated vulnerabilities, with survivors increasingly reliant on services that are already overstretched. It has become harder for many to leave abusive situations, and the availability of housing, emergency refuge spaces, and mental health support remains insufficient.

Without long-term funding solutions, many specialist organisations are unable to effectively plan and deliver the consistent, high-quality services survivors need.

In an era of uncertain funding, specialist organisations are facing significant challenges in sustaining their services, particularly those supporting survivors of domestic abuse, honour-based abuse, and sexual violence. Our engagement with the National VAWDASV Expert group which engages domestic abuse and sexual violence by and for providers helps to provide valuable insight to the state of the sector. Our priority remains advocating for:

• sustainable funding models that ensure specialist services can continue supporting survivors, especially those that cater to marginalised communities
• engaging with Welsh Government to secure long-term investment in VAWDASV services as part of a broader commitment to gender equality and violence prevention

Addressing intersectionality: tackling disparities across Wales

In our role as National Advisers, we have continued to prioritise the need for an intersectional approach to tackling violence against women, domestic abuse, and sexual violence. Intersectionality recognises that survivors experience multiple and overlapping forms of discrimination based on their race, gender, disability, sexual orientation, and other protected characteristics. Our work has highlighted the significant disparity in access to services and support for survivors across Wales, particularly those from Black, Asian, and Minority Ethnic communities, disabled individuals, LGBTQ+ survivors, and women facing economic hardship. There are specific barriers to fully understanding the prevalence of abuse and harms within our diverse communities as outlined above, with gaps in data and classification being the main issue. We must ensure public authorities and relevant bodies record ethnicity, disability and other protected characteristics in order for us to determine the tailored and specialist provision which is required.

Furthermore, groups such as the Honour Based Abuse Leadership group has identified this as a significant barrier for black and minoritised communities through meetings and recently identified through a mapping exercise, our aim is to develop an action plan to improve data to ensure all survivors receive the protection they need and national policy responds to meeting specific needs. Leadership is key and as such we continually raise disparities to Ministers and Welsh Government officials.

Despite the progress made, survivors with specific protected characteristics continue to report systemic discrimination and barriers when seeking safety, justice, and support.

Additionally, women who have been sexually exploited and those with disabilities remain a priority due to the multiple barriers they face in accessing support and services, improved understanding for professionals and dedicated funding is required to improve the limited specialised interventions available across Wales. They continue to face compounded barriers when accessing domestic abuse and sexual violence services, with many reporting long-standing gaps in tailored, trauma-informed support that meets their specific needs.

We are deeply concerned about these ongoing inequalities and are committed to ensuring that the voices of all survivors, particularly those from marginalised communities are elevated and centred in strategic efforts to eradicate violence and discrimination. Our work will continue to advocate for targeted actions that address these disparities and provide equal access to safety and recovery for all survivors.

As national advisers we set the following overall aim within our 2023 to 2024 annual plan:

“Work with, advise and challenge, government, public services and commissioners for the delivery of a whole system approach, preventing further abuse and protecting survivors of VAWDASV”.

The VAWDASV strategy and blueprint approach provides us with a good opportunity to work with government, public services and the specialist sector to achieve this aim There is commitment to delivering this specifically in the Sustainable Whole System Approach workstream, which is co-Chaired by Yasmin. It is also relevant across the other five workstreams, no activity should be planned in isolation. Through our attendance across all of the workstreams we are able to advise on the interconnections. There has and continues to be limitations on appropriate representation by public services and we have provided advice and challenge to the Cabinet Secretary for Social Justice, Trefnydd and Chief Whip on this. This representation is an illustration of the more important issue of the delivery of the Act itself by the relevant authorities. This has been further reinforced by the workshops and survey examining the delivery of the Act, Strategy and whole system approach delivered by the Sustainable Whole System Approach workstream. We will continue to work with Welsh Government and the blueprint team to respond to the findings, the challenges and opportunities for future improvements, particularly on the development of statutory guidance but also the important link to the improvement and monitoring of the National Indicators.

During this year we have also worked on the development of the first National Survivor Scrutiny panel, as outlined above in the overview of progress. We have ensured the recruitment and selection process has been inclusive and representative and are pleased to report we have appointed a diversity of experiences and representation. Our role within this meeting as respective Chairs also enables us to feedback to the Blueprint VAWDASV programme. We have continued to explore most effective ways of working, responding to panel members feedback and testing what works best for them.It was decided that workstream attendance will be tested as panel members would like to prioritise their focus and time.. There are nine workstream members and we continue with an open and continuous rolling recruitment process.

The implementation of the Renting Homes (Wales) Act brought some challenges for the specialist sector with refuges providing safety and support for a collective of people, creating a challenge for the individual rights-based approach of the Act. We raised concerns with both the Minister for Social Justice and Chief Whip and Housing Minister about this. We liaised with Welsh Government housing officials regarding the potential unintended consequences and are involved in the evaluation of the Act.

We also provided written and oral evidence for the Equality and Social Justice Committee’s Inquiry into “The Public Health Approach to Preventing Gender-Based Violence”. We have continued to follow up on the work required to deliver the recommendations and action. This work will continue into 2024 to 2025.

The National Indicators are an integral part of the VAWDASV Act with the purpose of demonstrating the impact and progress made through action taken to prevent, protect and support victims and survivors. We have worked with Welsh Government VAWDASV team and the Knowledge and Analytical Services on the development of measures for the National Indicators. This work aligns with the work for develop statutory guidance on needs assessments through the Sustainable Whole System Approach workstream.

In addition to the overall aim, we set a number of priorities for us to undertake in 2023 to 2024 with the purpose of achieving the aim. Progress against these priorities is outlined below.

Priority 1

Attending forums and meetings that provide oversight of the delivery of the VAWDASV strategy, blueprint approach and workstreams along with any other relevant fora.

As National Advisers we aim to ensure that we engage with all relevant forums and key stakeholders to maximise opportunities for the delivery of the strategy, provide expert advice and ensure that we are fully aware of the progress, challenges and opportunities for current and future delivery.

Yasmin chairs the All-Wales operational group for sexually exploited women and champions the priorities and works of this group and is co-chair for the Honour Based Abuse Leadership group.

We have developed a good working relationship with the Older People’s Commissioner. Sadly, we know that older victims and survivors are all too frequently not identified. The dynamics of the abuse of older people is complex with those perpetrating abuse often being children as well as intimate partners. In too many cases there are tragic consequences. We are seeing increasing numbers of older victims subject to domestic homicide reviews. Johanna attends the Stopping Abuse Action Group chaired by the Commissioner. We have also worked together to provide consistent messaging to government on shared priorities.

We also attend the Wales Sexual Assault Services Board, Independent Sexual Violence Advisor oversight group, Regional Advisers meetings, Criminal Justice for Wales Victim and Witness Taskforce, Domestic Abuse Commissioner Sector Call and Family Court Reporting and Review Mechanism Advisory Operational Board.

We have worked with the Welsh Government Sports policy team on issues in sport and collaborating on a model for sport, gender equity and prevention. We have seen the issues that exist in sport regarding gender inequality, misogyny and sexual harassment. However, we also know that most people in Wales will have a connection to sport as players, spectators, parents of children playing sport and for some as a place of employment. It therefore provides us with a great opportunity to engage with a large proportion of the Welsh population. We are working on a model for delivery of a ’Whole Sport Approach’ and hope to make more progress with this in the next year.

Priority 2

Keeping informed of relevant best practice and evidence and undertaking research to enable the delivery and expansion of well evidenced approaches in the delivery of services preventing VAWDASV and meeting the needs of survivors in Wales.

We have continued to advocate for models of best practice and gaps in understanding regarding the health impact of VAWDASV. Following realising the absence of VAWDASV in the Women and Girls Quality Statement, we have engaged with Welsh Government and NHS and requested the inclusion in the full plan. We will continue to work with those developing the plan.

As mentioned previously, we have been looking at how sport can support the delivery of the VAWDASV strategy. Through our research we have developed a relationship with primary prevention experts in Victoria, Australia who have been working for over 10 years on primary prevention models in sport, workplace harassment and education.

The independent, specialist sector in Wales continue to be the experts in survivor experiences and service delivery. We support the independent specialist sector as required, attending project launches and keeping aware of project, practice and challenges to inform our work. We chair the VAWDASV Expert Reference Group which is comprised of representatives from across the sector. This group’s continued concern is the financial pressures on the sector with increasing costs and shrinking budgets. One of the biggest consequences of this the challenge in recruiting and retaining staff. We facilitated a working group on this and a series of papers which have been shared with the Cabinet Secretary and VAWDASV team. We will continue to work with the Expert Reference Group on this and other priority areas as defined by them.

Positive engagement with men and boys in preventing and addressing violence against women, domestic abuse and sexual violence has increasingly been recognised as part of the solution. The Sound Campaign has been a hugely successful campaign aimed at working with men and boys to provide peer support and challenge to negative attitudes in relationships and also recognise positive and appropriate behaviour. We have supported this work and Johanna was involved in the ‘Sound Lad’ documentary. We were also able to coordinate a seminar with Professor Michael Flood a leading expert on violence prevention and working with men and boys.

The challenges and barriers experienced by survivors with no recourse to public funds continues to be a concern. Advice was provided to the Cabinet Secretary and officials prior to and following the report by the Equalities and Social Justice Committee. This advice supported the case for additional funding which was subsequently made available in the form of an ‘emergency fund’. Further advice has been provided to social services in cases where the legislative duty has not been adequately recognised. One case was escalated for advice and intervention by Welsh Government. This resulted in further assessment and support by the local authority.

Priority 3

Maintaining awareness of survivor experiences and issues, sharing and escalating through the Survivor Voice Scrutiny and Involvement Panel, wider consultation with survivors and survivor experiences through the specialist sector and any other engagement required.

As is often said, survivors are experts by experience. It is critical that we listen and respond to these experiences. We must do this with meaning, evidencing the changes we make as a result of survivors sharing their experiences which is inevitably traumatic and painful. Their commitment is to make things different for the future and we must match their effort and ambition. 

As outlined above, we have established and continue to chair the National Survivor Scrutiny and Involvement Panel. We continue to have 1 to 1 meetings with Survivor Panel members ensuring they have the support needed to confidently engage with and scrutinise the work of the Blueprint. In each Blueprint meeting from Partnership board through to working groups, we provide input from panel members and survivors we have engaged with in other ways.

We have and continue to attend other survivor forums. We also meet with survivors with specific issues that they feel demonstrate whole system and systemic issues. We cannot advocate for individual survivors, but we do always agree actions that we will take to raise experiences as examples of changes that need to be made to better improve responses to violence against women, domestic abuse and sexual violence in Wales. We also engage directly with the independent specialist sector to be informed and aware survivor experiences, issues and priorities.

Family court is one of the most consistent and persistent issues raised by survivors of domestic abuse. We have worked with the Criminal Justice in Wales Coordinator on survivor engagement, feedback mechanisms and issues regarding family court. A document of the issues and action that can be taken in Wales, regarding a reserved area of government, is currently out for consultation with survivors and survivor forums across Wales.

Priority 4

Utilise powers as provided within the Act to request information from a relevant authority to properly scrutinise and advise on the delivery of the Act.

We did not enable these powers during this year. This priority is being progressed through the work being undertaken on the Sustainable Whole System Workstream.

Priority 5

Specifically advise public services and relevant stakeholders on the delivery of their responsibilities within the Act for the prevention, protection and support of victims and survivors.

A key function of our role is to provide advice to ministers. We continue to advise Welsh Government officials and Minister of the issues in relation to the responsibilities to deliver the Act on matters previously stated including the National Indicators, funding of the sector and the Renting Homes (Wales) Act. We have provided written advice to the Higher Education Funding Council (HEFCW) on the VAWDASV guidance. We will continue to work with the new higher education body, Medr, and Welsh Government HE officials on improving university guidance and response to VAWDASV. Johanna is also a member of the Cardiff University Advisory Group. We have engaged with and offered support and advice across other government departments. We provided a response in 2023-24 on the Peer-on-Peer Sexual Harassment Plan, Women and Girls Health Plan, Child Sexual Abuse Action Plan and advice to the Fair Work team.

Priority 6

Ensuring that while there is change and innovation, there is investment in ‘core’ by and for services that consistently meet the needs of victims and survivors of VAWDASV.

The independent specialist sector in Wales for VAWDASV existed long before the VAWDASV Act, and indeed the legacy work of the Cabinet Secretary for Social Justice, Trefnydd and Chief Whip includes setting up the first refuge in Wales. The specialist sector hold the knowledge, skills, expertise and also trust of so many survivors. Unfortunately, the issues of limited funding, over-burdened services and higher demands is also a continued legacy.

There are huge financial pressures on Welsh Government, but grants were protected for 2023 to 2024. We continue to look for how the sector can be adequately resourced. As outlined previously, a paper on the recruitment and retention issues for the sector has been shared and further work has included looking at opportunities for improvement through the Social Partnership Bill. The duties placed on public services to take action to prevent, protect and support also includes the delivery of services. This is not simply about signposting and referral but also planning services to meet the needs. We continue to update the Cabinet Secretary about the financial pressures and consequences.

Priority 7

Participate in all fora to bring the Welsh experience and needs into focus and for policy, funding and government decision making relating to VAWDASV.

Our response to this priority is outlined under priorities 1 and 6.

Priority 8

Representation of the Welsh perspective in UK Government policy, improving and representing the Welsh perspective and survivor voices within UK Government policy and Commissioners.

We have participated in the following UK Government forum as VAWDASV National Advisers for Wales: 

• Member of the Domestic Abuse Commissioner’s Family Court Monitoring Group.
• Member of the Honour-based abuse Crown Prosecution Service National Stakeholder (England and Wales) group.
• Home Office and Ministry of Justice regular VAWG meetings.
• Law Commission consultation session regarding evidence for sexual offences.

As we look ahead, it is evident much remains to be done in our collaborative efforts to eradicate violence against women, domestic abuse, and sexual violence in Wales. We must continue to support the inter-dependency framework and cross government approach outlined in the Blueprint, ensure sustainable funding for specialist services, and always prioritise the voices of survivors, all survivors, in everything we do.

The All-Wales Survivor Panel will remain central to our work, ensuring that survivors’ experiences continue to shape future strategies and interventions. We must also recognise the critical role of the National Partnership Board, which has been instrumental in driving collaboration and consistency and accountability across sectors and relevant bodies listed in the VAWDASV Act (2015). We must also align our work with key legal frameworks including the Social Services and Wellbeing Act, Wellbeing of Future Generations Act.

Our work advising Ministers, and the Welsh Government has led to important progress, but there is still much to do. We must all continue to urge public bodies to step up their efforts to prevent, protect, and support victims and survivors, ensuring that services are inclusive, trauma-informed, and delivered through a whole-systems approach. By keeping survivor voices at the heart of all we do and addressing the disparities that exist, we can move towards a Wales where every individual is safe, respected, and supported.