Questions/Answers

Bihar is India’s third most populous state with around 104 million people, as per Census 2011. Of this, females constitute nearly 50% of the state’s population. Different studies indicate high level of violence against women and girls. As per NFHS 4 data collected and published in 2015-16, 43.2% of ever-married women have experienced spousal violence. This is a decadal decline in spousal violence of around 17 percentage points. The decline can be in large parts attributed to the measures undertaken and implemented by WDC under the aegis of the state, other arms of the state apparatus and different non-state actors. In Bihar, the Women Development Corporation (WDC) is the nodal agency implementing woman-specific laws and policies, including the Dowry Prohibition Act, 1961 (Ministry of Women and Child Development), the Prohibition of Child Marriage Act, 2006 (Ministry of Law and Justice, 2007), the Sexual Harassment at Workplace Act,2013(Ministry of Law and Justice, 2013), and most important for this study, the Protection of Women from Domestic Violence Act, 2005 (Ministry of Law and Justice, 2005). In this capacity, in 2008-09 WDC set up a coordinated response system for survivors of Violence against Women and Children (VAWG) through helplines based in almost all 38 districts, and shelters or short stay homes based in 24 of the state’s 38 districts. These facilities provide services including counselling, legal representation through free legal aid and shelter for women in distress. An independent study conducted by the Population Council, Centre for Catalyzing Change and the London School of Hygiene & Tropical Medicine shows that most women sought services to arrive at reconciliation with their husband or other family members. The prevalence of physical and sexual violence perpetrated by husbands fell significantly in the inter-survey period (44% to 29%, 28% to 10%, respectively).

Evidence from India, in general, and Bihar, in particular, suggests that help is rarely sought from institutional sources since survivors of Violence Against Women and Girls are either scared of bringing ‘dishonour’ to the family, shaming herself in public, institutional non-response and therefore the fear of going back to the same household where the violence was perpetuated leading to the fear of being beaten again. Low awareness of formal support services are additional inhibitors. Women are more vulnerable to all forms of violence, and should be provided focussed and easily accessible legislative and administrative support. Women Development Corporation’s coordinated response system to address multiple facets of violence against women (both in its perpetuation and redressal). The intervention was launched to provide support to survivors of violence. The state-wide helpline for women provides ‘important access to information and support systems for survivors of violence against women’. This was in close alignment of Sustainable Development Goal targets under Goal 2. The helpline in addition to receiving distress calls, also provides an eco-system ensuring ‘access to justice and helps build effective, accountable and inclusive institutions at all levels’.

The coordinated response system addresses multiple challenges of survivors of VAWG. It includes short stay homes administered by Women Development Corporation and provides access to high-quality, affordable services for women in distress. The Women’s Helpline is a physical space that registers complaints telephonically, and is one of its kind in the country. In addition to helping survivors of domestic violence file Domestic Incident Report, it provides a range of services including (a) reporting of crimes (First Information Reports) in Police Stations, (b) free legal aid, (c) temporary shelter up to three months at Short Stay Homes and other organisations, and (d) medical assistance. Additionally, it promotes responsiveness to the needs of women & Promotes transparency and accountability in service delivery to women. Currently, all districts have Helplines managed by the District Protection Officer and/or Non-Governmental Organizations. About 70% cases registered are about domestic violence. The provision of one to one and joint counselling makes Women’s Helplines different from police stations and courts. The services are provided free-of-cost to aggrieved women. Program is administered at the district level with regular reviews undertaken. The cases registered are recorded on a monthly basis and shared with the Managing Director, Dr. N Vijaylakshmi for reviews. Third party studies have also been undertaken for neutral assessment and evaluation.

An independent study undertaken by Population Council, Centre for Catalyzing Change and London School of Hygiene and Tropical Medicine establishes the positive manner in which the initiative has helped improve delivery of public services. Women respondents in the study have reported to being ‘overwhelmingly positive’ after their first contact with the helpline. “They appreciated the quality of care received from the Counsellors at the helpline and were satisfied with the services and counselling they had received at their first visit. They were greeted warmly (99%), made to feel comfortable (98%), given close attention (86%), and treated with respect (91%). Their only complaint was the lack of visual (85%) and auditory (71%) privacy during their consultations with the Counsellor.” As many as 91 percent of women who had made an initial visit to the helpline to register their case, reported subsequent telephone or personal interactions with the helpline. A research paper currently being reviewed by the Economic and Political Weekly states that women after their first intervention are ‘less likely to report suicidal thoughts at follow-up (18% versus 53%), and many more reported a sense of economic security, happiness, self-confidence and peace of mind.’

Survivors of Violence Against Women and Girls are either scared of bringing ‘dishonour’ to the family, shaming herself in public, institutional non-response and therefore the fear of going back to the same household where the violence was perpetuated leading to the fear of being beaten again, and the low level of awareness of formal support services are some reasons preventing women from seeking help from institutional sources. Not addressing this reality is a major stumbling block in the state’s commitment to not only promoting gender equality but to also ensure ‘peaceful and inclusive societies for sustainable development & access to justice for all’. The coordinated response system takes these ground realities into account in its design and service delivery by instituting- Special Cell for women and children within police stations; free legal aid; free counselling; temporary shelter at Short Stay Homes; and free medical assistance. In addition, there are extensive and frequent awareness campaigns undertaken as part of their outreach activities. The helplines alone have registered 30102 cases of domestic violence, 231 cases of dowry related deaths, 1403 cases of second marriage, 1426 cases related to property, 983 cases of sexual violence and 459 cases of human trafficking.

The coordinated response system to survivors of VAWG has almost 53,000 cases registered at the helpline and almost 11,000 women have benefitted from the short stay homes, since launch. It provides women an easy access to justice and doesn’t expose them to the fear of social approbation or further household violence since she can call without the fact being known. The intervention is also reaching out to the most vulnerable. An analyses of the cases registered show that almost as many (85%) belonged to socially disadvantaged castes. To quote the policy brief published by Population Council, Centre for Catalyzing Change and London School of Hygiene and Tropical Medicine ‘Women’s first contact with the helpline was overwhelmingly positive.’ A research paper based on this study (currently being reviewed by the Economic and Political Weekly) found that the prevalence of physical and sexual violence perpetrated by husbands fell significantly in the inter-survey period (44% to 29%, 28% to 10%, respectively) as did the prevalence of physical violence perpetrated by family members (26% to 11%). Women were also less likely to report suicidal thoughts at follow-up (18% versus 53%), and many more reported a sense of economic security, happiness, self-confidence and peace of mind.

The coordinated response system is implemented by Women Development Corporation, Department of Social Welfare with funding support from the Government of Bihar. It is sponsored by the Central Government of India. It reaches all 38 districts and targets the women population of the state estimated to be around 60 million (Census of India, 2011). It focuses especially on the marginalised since they would face multiple vulnerabilities and deprivations. This was the first of its kind initiative in the state and among the first in the country. Its innovation lies not in administering a helpline at such a vast scale, but in additionally facilitating an enabling eco-system and environment wherein a distress call is addressed through multiple channels- counselling services, medical assistance, legal aid and support in filing FIRs. There are special cells which have been created within police stations which are women and child friendly. In case the women feels unsafe in her household or/and if it is assessed that staying in the household is not recommended or in her best interest, Women Development Corporation as part of this initiative also runs short stays homes in many districts to provide temporary shelter up to three months to women in distress.

This coordinated response system to survivors of VAWG was an original innovation of WDC to provide comprehensive support services. It has established an ecosystem covering a wide range of meaningful and effective services including the helpline, counselling, medical assistance, legal aid, and short stay home as an interim residence measure. The residences additionally provide vocational skills training to residents. This is a first of its kind in the state of Bihar and indeed in the country in the extensive scale and range of its reach, beneficiaries and services. In addition, there are extensive and frequent awareness campaigns undertaken as part of outreach activities. Based on the results of an assessment of the intervention conducted by Population Council, different components of the intervention were further strengthened to align more closely as an effective redressal mechanism. Separate cabins were built within the helpline space for counselling services to afford privacy to survivors of violence.

Women Development Corporation spends approximately USD 640000 per annum on running 38 helplines and USD 740000 per annum on running 24 short stay homes across the state. To discharge services effectively, the necessary human resource has also been put in place. Each helpline is staffed with one project manager, two counsellors, three member advocates and one peon. In Patna, which is the capital of the state, the staff strength has been increased to match the district’s increased needs. In addition to the regular staff pattern, four staff members have been recruited to provide necessary assistance. All helplines have been provided with an office space with the necessary infrastructure, a vehicle and contingency funds for miscellaneous expenses. Each short stay home incurs a cost of around USD 31000 per annum which includes rent, food, clothing, medicines. In addition it also provides skill training to residents of the homes. The manpower to run these short stay homes include one rehabilitation and training officer, one counsellor, one accountant, two cooks, three security personnel and one peon. These homes are run by Non-Governmental Organizations and Women and Child Development Corporation provides financial and technical support to these organizations.

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The coordinated response system for survivors of VAWG is adaptable. The Government of India has initiated the ‘One Stop Centre’ whose model is designed on very similar lines as that of WDC’s coordinated response system. The One Stop Centre model in fact provides a similar ecosystem and bouquet of services as well- provisioning the entire range of services for which the government bears the cost and no cost is borne by the survivor of violence. The range of services include counselling services, legal aid, and medical assistance and short stay homes. The One Stop Centre was launched by the Government of India in 2015 whereas the intervention by the Women Development Corporation was launched in 2008-09.

The initiative is both sustainable and scalable. It is a sustainable model because it is a well thought out intervention which takes into consideration the different needs of the survivors and addresses them in meaningful ways. The helpline was rolled out in 2008-09 across the state of Bihar. Looking at the success of the initiative the government of Bihar has adopted the model and made a provision in the women empowerment policy 2015. The initiative is implemented by the Women Development Corporation with funding support from the state government. Since it is also the implementing agency for different women related legislations including Protection of Women from Domestic Violence Act, The Sexual Harassment of Women at Workplace (Prevention, Prohibition and Redressal) Act, and Protection of Children from Sexual Offences Act etc. this particular initiative fits into the overarching women empowerment policy of the state effectively. Functionaries and duty bearers involved in the initiative are regularly reviewed and capacity building exercises undertaken. Exposure visits have been organized for the various functionaries. Project managers of the helplines have been designated as protection officers under the Protection of Women from Domestic Violence Act by the state government, giving them legal authority. Standard Operating Procedures for Protection Officers have been developed and are in operation in the state which itself is a unique initiative undertaken by WDC, since it has not been undertaken by any other state at present. This particular intervention is also an example of close convergence between government departments like police, judiciary, health, and social welfare department etc. This kind of engagement of helpline with service providers has helped in ensuring faster case resolution and in providing relief to the victim.

The initiative which was started in 2008-09 has not only sustained over a period of almost a decade but has also evolved and climbed from strength to strength. Its durability is ensured by the success of the initiative. 80% of the women’s grievances get redressed through counselling services provided by the intervention. Over time, it is now widely acknowledged as having become a successful platform for the implementation of the Protection of Women from Domestic Violence Act. This is one of the first initiatives in the country to cater to the needs of women who have been survivors of violence in a manner which has been effective, meaningful and is regularly reviewed by third party agencies. The fact that the intervention has been running since the last nine years itself is testimony to its sustainability and durability. With support from the state government and in convergence with its recently introduced one stop centre, it will continue to provide meaningful services for women in distress for years to come. This intervention is sustainable due to its institutionalisation; alignment with the United Nations’ Sustainable Development Goal 5 of helping ‘achieve gender equality and empower all women and girls’ and United Nations’ Sustainable Development Goal 16 of helping ‘Promote just, peaceful and inclusive societies’ especially women who are more vulnerable to violence coupled with the state government’s continuous financial support. 53,000 cases have been registered of which approximately 41918 cases have been resolved. Additionally, almost 11,000 women having benefitted from the short stay homes, since its launch.

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The intervention is regularly assessed. In the last nine years of its operation it has undergone three formal evaluations undertaken by three independent agencies. The details have been provided below: 1. Study undertaken by the Population Council: The initiative has been evaluated by Population Council with support from DFID programme of research under the Sector Wide Approach to Strengthen Health (SWASTH programme) to assess what works to address violence against women in Bihar. 2. An independent study was conducted by ICAI (Independent Commission for Aid Impact) commissioned by DFID UK to assess the impact of helplines and short stay homes in Bihar. ICAI rewarded the project a green rating which is the highest as per their assessment measures. Green represents strong achievement across the board, and stands out as an area of good practice which made a significant positive contribution. 3. A study was conducted by One World South Asia which was commissioned by DFID to assess the impact of various interventions undertaken by Women Development Corporation in addressing survivors of Violence against Women and Girls. To quote from the study “The Women’s helpline is also an example of close coordination and strong linkage between government departments like police, judiciary, health and social welfare department. This kind of engagement has led to more effective services.

The outcome of the evaluation indicates that most women called the helpline within months of hearing about it and that they were informed about it through their informal networks. However many respondents stated that they were not aware of the range of services offered by the helpline and that quite a few had sought helpline services in order to forge a reconciliation and a halt to violence or for provision of regular maintenance for themselves and their children; few had sought services for initiating criminal proceedings or a legal separation or divorce. Women’s first contact with the helpline was overwhelmingly positive. They appreciated the quality of care received from the Counsellors at the helpline and were satisfied with the services and counselling they had received at their first visit. They were greeted warmly (99%), made to feel comfortable (98%), given close attention (86%), and treated with respect (91%). Their only complaint was the lack of visual (85%) and auditory (71%) privacy during their consultations with the Counsellor. Helpline staff members concurred that most women seeking their services had experienced some form of emotional, physical or sexual violence perpetrated by their husband and/or other family members.

The study included three components, namely, repeated surveys with women who accessed the services of helplines, in-depth interviews with women and girls residing in short stay homes, and in-depth interviews with service providers from both helplines and short stay homes. The indicators used included experience of first call, experience of intervention services initiated, the woman’s history of physical, sexual and emotional violence within marriage, and physical and/or emotional violence perpetrated by a family member/s, including the perceived cause/s of violence, the reasons that may have inhibited her from seeking timely help and help-seeking experiences, experiences of violence-related injuries, the husband’s alcohol abuse pattern, as well as the quality of helpline services obtained, and the effectiveness of these services in protecting the woman from further violence, enhancing her economic security, and improving her wellbeing. Also covered were aspects of women’s agency, including decision making, mobility and self-efficacy. The service providers’ understanding of the objective of the helpline service was also assessed. In addition, the infrastructure underscoring these services and staff capacity were evaluated.

The coordinated response is also an example of close convergence between government departments like police, judiciary, health, and social welfare department to count a few. The short stay homes are run as a collaborative venture between the government and NGOs. This kind of engagement of helpline with service providers has helped in ensuring faster case resolution and in providing relief to the victim. The Project Manager-cum-Protection Officer is appointed under Protection of Women from Domestic Violence Act, 2005 manages the helpline centre. The Protection Officer is supported by two Counsellors and three empanelled lawyers to provide legal assistance. In some districts the helplines are run by NGOs as well. Each department plays a very specific role helping meet the larger objective of grievance redressal for survivors of VAWG. While the judiciary supports with providing legal aid, the health department provides medical assistance when required, the police provides necessary law enforcement through case registry and charge-sheets, and the department of social welfare anchors the program through Women Development Corporation and provides linkages with social protection schemes as required. All services are provided free of cost to aggrieved women.

The coordinated response system implemented by the Women Development Corporation initiates continuous and sustained improvements to cater to the specific needs of women in distress in the state in meaningful ways. Subsequent to a third party study on the intervention, WDC provided the necessary infrastructure in the helplines to provide visual and auditory privacy to women during counselling services. Similarly, WDC has provided Closed Circuit Televisions within the premises of the short stay homes to strengthen its monitoring of service provision. Similarly, it established special cells for women within selected police stations. These special cells laid focussed emphasis on creating an enabling and woman friendly environment for women in distress and provided support through additional manpower in the form of women counsellors. These professional women counsellors who provide counselling services and a human face to the redressal process. They also provide a critical link between the survivors of VAWG and the justice system. This model is now being scaled to a state wide level, due to its proven effectiveness. WDC will be undertaking wider outreach and awareness on the issue of VAWG and subsequent redressal available towards its objective of last mile connectivity and supporting the state in meeting the Sustainable Development Goals. It has been taking incremental measures in expanding the overall eco-system towards gender empowerment in the state. The most recent initiative in this direction is being the nodal agency in supporting the state wide campaign against Child Marriage and Dowry. The coordinated response system is emerging as a key redressal and rehabilitation mechanism within this campaign.