Agenda item

To consider the SBC Domestic Abuse Steering Group view on, and response to, a report published by the Local Government & Social Care Ombudsman regarding the duties of Councils to victims of domestic abuse.

The Committee considered the Stockton-on-Tees Borough Council (SBC) Domestic Abuse Steering Group view on, and response to, a recent report published by the Local Government & Social Care Ombudsman regarding the duties of Councils to victims of domestic abuse.  This followed an October 2024 statement from the Ombudsman that ‘victims of domestic abuse are sometimes being let down by Councils using an outdated and too narrow definition of what abuse means’.

A new guidance document aimed at improving Local Authority awareness of their duties to victims when providing housing and homelessness support was also published, with the Ombudsman urging Councils to reassure themselves that they were looking at people’s cases through the lens of the Domestic Abuse Act 2021 (which created new duties and powers for Councils to help victims).  In order to seek this assurance, the Committee approached the Council’s Domestic Abuse Steering Group to ascertain its thoughts on the content of this report and any response to it.

With reference to a prepared presentation (included within the meeting papers), the SBC Director of Public Health / Chair of the SBC Domestic Abuse Steering Group, supported by the SBC Strategic Health & Wellbeing Manager, highlighted the following:

·         Strategic Context: Under the umbrella of the Stockton-on-Tees Health and Wellbeing Board, the issue of domestic abuse was tackled locally by the Council’s Domestic Abuse Steering Group (DASG).  Within the context of the Domestic Abuse Act 2021, and with links to the Safeguarding Boards covering the Stockton-on-Tees footprint and the Safer Stockton Partnership (SSP), key strategic documents included both the Borough’s Domestic Abuse Strategy 2022-2028 and the overarching Stockton-on-Tees Joint Health and Wellbeing Strategy 2025-2030 (which included domestic abuse issues and was due to be presented to the SBC Cabinet in February 2025 for approval).

·         Domestic Abuse Steering Group: Reporting to the Health and Wellbeing Board, the DASG was a multi-agency partnership between SBC and relevant organisations (e.g. police, health professionals, Harbour, etc.) which supported system-working to prevent, identify, intervene early, and respond to domestic abuse in Stockton-on-Tees.  A DASG Action Plan was in place, with themed meetings every two months which focused on key strategy areas.  Outcome indicators were in the process of being specified to measure progress.

·         What is Domestic Abuse?: Defined in section 1 of the Domestic Abuse Act 2021, it related to abusive behaviour between individuals who were aged 16 or over and were personally connected to each other.  Behaviour was considered ‘abusive’ if it involved any of: physical or sexual abuse, violent or threatening behaviour, controlling or coercive behaviour, economic abuse, or psychological, emotional or other abuse.

·         Domestic Abuse Strategy 2022-2028: To deliver outcomes for domestic abuse, a number of indicators (including who was responsible for them) and system outcomes (including how these would be measured) had been identified to support the priorities listed within the overarching strategy.  Achieving progress on these would help in realising the local vision – that is, everyone experiencing domestic abuse was listened to, supported and protected to live their life free from abuse, all victims of domestic abuse had access to inclusive, quality, affordable and appropriate safe accommodation / support, and perpetrators of domestic abuse were held to account and supported to change behaviour.

·         Local Government & Ombudsman Report: The Ombudsman’s report highlighted several key elements regarding the issues of domestic abuse and housing.  Ensuring the correct definitions of ‘domestic abuse’ and ‘priority need’ were used, requirements around robust assessments of need (including the application of the right test to determine if an applicant was homeless), the subsequent provision of appropriate accommodation (and keeping this under review), and maintenance of good communication and record-keeping were all emphasised.

·         Safe Accommodation: There was a duty to undertake a needs assessment every three years in relation to safe accommodation – this covered refuges (for females), dispersed properties (for males), sanctuary, and move-on facilities.  The Council and its partners worked collaboratively to respond to the outcomes of these assessments so suitable accommodation was available across the Borough.

·         Homelessness: With due regard to the Homeless Reduction Act 2017, work in relation to those individuals experiencing and / or fleeing domestic abuse was enhanced locally by Harbour’s role within the Council’s homelessness service.  The application process and subsequent needs assessment aided the identification of the most suitable accommodation, with individuals also supported through the Domestic Violence Protection Orders (DVPO) pathway (arrangements between the police and the homelessness service to accommodate perpetrators).

·         Communication & Pathways to Support: The introduction of a single point of contact within the local homelessness service during 2022-2023 had led to an increase in the number of homelessness presentations involving domestic abuse.  This had also increased knowledge and capacity in the service, as well as improving the pathway into specialist support.

Expressing thanks for the information provided, the Committee noted the absence of references / links to mental health services despite those subject to domestic abuse often suffering issues which such provision could help address.  SBC officers gave assurance that individuals (whether victim or perpetrator) accessing Harbour would have an assessment to identify any mental health needs and support requirements.

Discussion ensued around the provision of gender-specific accommodation, with the Committee informed that only seven self-contained units were available within ‘refuge’ (which had historically been for female use).  Semi-detached ‘dispersed’ accommodation was utilised for males – if there was higher demand than the three available properties across the Borough, services would need to seek accommodation outside of Stockton-on-Tees.

Following a Committee query, it was confirmed that daily meetings took place with the police (neighbourhood teams) which included considerations around the issue of domestic abuse.  Members expressed concern that violence appeared to be starting at an earlier age these days, with coercive abuse beginning with initial subtle messaging before evolving into something more serious.  Also, what services were aware of was likely to be just the tip of the iceberg.  SBC officers drew attention to the existing partnership with the police which was the strongest it had been for some time – this was aiding better recognition of local cases involving domestic abuse.

Observing that victims could sometimes be unaware they were being adversely impacted by another person, Members asked if Harbour assisted frontline social housing workers in looking for signs of domestic abuse.  It was reported that Harbour worked with both Thirteen and North Star housing groups, and had also produced a workforce development plan which helped staff understand what to do in certain situations.

Members spoke of the historically poor attitude of the police in relation to this issue (too often seeing it as ‘just’ domestic abuse) and welcomed the greater importance it now seemed to be getting.  Indeed, alarm was expressed over past thresholds that needed to be met before such abuse was investigated.  Closing this item, Members re-iterated that there was likely a lot of hidden abuse going on, with the Committee noting the inaccurate perception that domestic abuse only took place within lower social-economic environments.

AGREED that the Domestic Abuse: Duties to Victims presentation be noted.