3 Prevention
Awareness raising (Article 13)
29. Article 13 of the Istanbul Convention requires
the UK to promote or conduct awareness raising campaigns. This
is a policy-based requirement. As discussed in this chapter, the
Home Office has taken the lead on awareness raising campaigns
but there is a need for campaigns to be cross-departmentalfor
example the Department for Communities and Local Government liaise
with faith leaders and the Department for Education is responsible
for disseminating relevant campaigns to schools.
Article 13Awareness-raising
1 Parties shall promote or conduct, on a regular basis and at all levels, awareness-raising campaigns or programmes, including in co-operation with national human rights institutions and equality bodies, civil society and non-governmental organisations, especially women's organisations, where appropriate, to increase awareness and understanding among the general public of the different manifestations of all forms of violence covered by the scope of this Convention, their consequences on children and the need to prevent such violence.
2 Parties shall ensure the wide dissemination among the general public of information on measures available to prevent acts of violence covered by the scope of this Convention.
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HOW WELL IS THE UK FULFILLING THE POSITIVE OBLIGATIONS
UNDER THE ISTANBUL CONVENTION?
30. The Government's Action Plan says that in the last 12 months
it has successfully bid "for funding (approximately £250,000)
from the European Commission to fund a project raising awareness
of Female Genital Mutilation (FGM) in the UK" as well as
"re-launching the highly successful This is Abuse campaign,
including collaborations with Hollyoaks [a TV soap opera] and
MTV, and a new focus on reaching young male perpetrators."[31]
31. The Government has also worked with or supported
other campaigns aimed at fostering cultural change and focusing
on male behaviour. On 9 June the Home Office launched a campaign
which ran alongside the 2014 World Cup, urging young men to think
about the consequences of domestic abuse. Posters were placed
in hundreds of men's toilets across pubs and bars in England,
and digital adverts were featured on the Sky Sports website and
app. Aimed at 18 to 35-year-olds, the campaign reminded men that
abuse doesn't have to be physical, as threats and controlling
behaviour also count. The adverts also reminded potential perpetrators
of the terrible impact of domestic abuse, both physical and psychological,
on relationships. It signposted available support, with contact
details for the charity Respect.[32]
32. We are also aware of a campaign by Women's Aid
to raise awareness of violence against women in popular culture
in, for example the use of lyrics depicting domestic violence
by Welsh Rugby fans when they sing the song 'Delilah', by Tom
Jones, during games.[33]
33. Other organisations have also taken steps to
help foster a culture of change, in particular focusing on men.
Sussex Police helped promote challenging domestic abuse when they
worked to obtain a full page promotion for White Ribbon Campaign,
a campaign for women to take a stand against violence against
women, in Want you Dead, a thriller about stalking by Peter
James. The book was Number 2 in the hardback fiction charts. Alongside
this, the White Ribbon Campaign produced a set of anti-stalking
campaign materials, including posters.[34]
34. In articles and written evidence, different forms
of media have been argued to have a positive effect in changing
cultural attitudes. The researchers on an Economic and Social
Research Council funded project, From Boys to Men, said:
"Social marketing has the potential to open a thoroughgoing
conversation between young people and adults about the nature
of domestic abuse and what can be done to engage those boys and
men who begin to perpetrate it [
] Social marketing campaigns
should also help explore some of the ways young men might respond
when they are troubled by other men's behaviour, without necessarily
having to physically confront perpetrators or endanger victims".[35]
35. Dr Joanna Goodey, Head of Freedoms and Justice
Department at the European Union Agency for Fundamental Rights,
said that media campaigns could have a positive impact on cultural
attitudes and gave examples of good practice from other countries:
People are often surprised that in countries
like Spain there are very progressive initiativesTV campaigns,
media slotswhere men speak against violence against women.
Spain is very much in the lead on this, and has been for a number
of years now, so the stereotypes that exist about how certain
member states respond to violence against women are often proven
not to be correct [
] Only last week you may be aware that
the USA launched a huge campaign with Barack Obama, the Vice-President
and also prominent film starsour very own Daniel Craig,
for example. You had the political and the populist response,
where you had men, including the President, in a slot speaking
out against violence against women.[36]
36. Chris Green, Director of the White Ribbon Campaign,
argued that the Government needs to continue to challenge the
normalisation of violence against women amongst boys and young
men. He said: "I think it is hugely important to engage with
men. It is men's responsibility; we commit 90% of [violence] against
women."[37] Article
12 of the Istanbul Convention requires the UK "to take the
necessary measures to encourage all members of society, especially
men and boys, to contribute actively to preventing all forms of
violence covered by the scope of this Convention."
37. We also heard evidence that, whilst the Government's
campaigns are welcome, they could be made more effective. Professor
Liz Kelly, Co-Chair of the End Violence Against Women Coalition,
argued that the Government's This is Abuse campaign is
not used as strategically as it could be. She said: "some
schools do not even know that it exists. There is not a systematic
way of alerting the schools that, each November, this is going
to come up, and they could actually use it as a resource."[38]
The End Violence Against Women Coalition called for: "long
term investment in public campaigns to change harmful attitudes
and behaviours, learning from the THINK! Road safety campaign."[39]
38. JAN Trust argued for awareness raising that is:
"culturally sensitive and informed by specific best response
practice [so] that government rhetoric and strategy concerned
with manifestations of VAWG most likely found in certain communities
do not contribute to an 'othering', racially divisive discourse
that merely drives the victims to feel further alienated from
mainstream British society".[40]
The Bar Human Rights Committee of England and Wales called for:
"community engagement programmes directed at modifying attitudes
towards and cultural practices relating to VAWGs".[41]
39. We also heard evidence from different groups
within society that may be difficult to reach through current
campaigns. As we said in our Introduction, we recognise this crosses
lines of race, religion and culture. Northern Ireland Women's
European Platform told us:
Domestic violence perpetrated by paramilitaries
or those with paramilitary connections against their partners
or families was not dealt with appropriately during the conflict.
In post-conflict Northern Ireland this continues to be an issue
regarding ex-combatants who have been released on license from
prison. In some cases where a perpetrator would be returned to
prison if he committed further crime, women who are victims of
their violence are being pressured by their community not to report
domestic violence to police. As a result of the conflict, and
the uneasy relationship between police and certain communities,
sexual and domestic violence and child abuse have been addressed
in some areas through community-based groups instead of via official
channels such as police or expert organisations like Women's Aid.[42]
40. Paul Valentine, a profoundly Deaf man who works
for the Exeter Royal Academy's BSL counselling service, told us
about the difficulties for those that are deaf: "the Deaf
community is very small, which can make it a stressful environment
to live in, with not many other opportunities to make friends
outside of the community [d]ue to language barriers. For hearing
people, if they make a mistake, or upset people they have the
option to leave that friendship group or because they have many
friendship groups, their mistake can be diluted [
] participants
have no option but to stay in the community, or else risk total
isolation."[43]
The issue of language barriers is not exclusive to the deaf community.
Cris McCurley, solicitor and partner in the practice of Ben Hoare
Bell LLP, identifies women living in the UK without the English
language as extremely vulnerable.[44]
41. The Lesbian and Gay Foundation told us about
the need to direct prevention action and awareness campaigns at
the LGB&T community as well: "Currently there is no strategic
approach from prevention to detection and treatment of domestic
abuse for LGB&T people [
] Information displays in waiting
areas need to include LGB&T friendly material to make LGB&T
people feel welcome and reduce barriers to accessing support services.
Separate literature needs to be developed targeting LGBT victims
and identifying LGBT specific weapons of power and control. For
instance, many LGBT people do not realise that a threat to out
them is a form of domestic abuse."[45]
42. Paul Valentine and the Lesbian and Gay Foundation
represent two of a number of communities where there are challenges
regarding reaching victims of violence against women and girls
as well as awareness raising. We are particularly concerned about
the ability of the existing awareness campaigns to reach victims
in these sorts of communities.
43. In response to questions about how well initiatives
are working at raising awareness amongst men, the Minister for
Crime Prevention, the Rt Hon Lynne Featherstone MP, said the Government:
"support all of the campaigns that take this on, such as
the White Ribbon campaign and the UN's HeForShe".[46]
Regarding awareness campaigns for different communities, the Minister
for Crime Prevention said that the Government had given £10,000
to "a scheme [
] about training champions to go into
those communities that are closed to us and begin that change
mechanism. In the case of FGM, another example would be working
with faith leaders. These are mainly patriarchal societies where
what the faith or community leader says goes."[47]
44. We acknowledge the work that the Government has
undertaken to work with faith leaders. However, witnesses raised
concerns regarding state actors working with such leaders as they
need also to "build up trust with the women and girls who
are at risk" and cooperate with the organisations who are
working directly with women.[48]
45. We commend the Government for the awareness-raising
initiatives it has undertaken but note that evidence indicates
that a lack of co-ordination across departments has reduced the
potential reach, delivery and ultimately success of these initiatives.
We recommend that the Inter-Ministerial Group monitor the success
and effectiveness of the campaigns to ensure that future campaigns
are evidence based.
46. We also recommend that campaigns sometimes
need to be targeted and specific. This would help reach communities
with particular needsfor example, people with disabilities
or LGB&T people. We commend the This is Abuse campaign
for raising awareness of the issue of consent and coercive control
and recommend that it be extended further to focus on LGB&T
relationships. We also recommend that the Government should support
the charities and organisations that could raise awareness with
women within communities rather than just targeting faith and
community based leaders.
Education (Article 14)
47. Article 14 of the Istanbul Convention specifies
that teaching material on issues of violence against women and
girls is included in formal curricula at all levels of education.
This is a policy and practice based requirement. This Article
places a requirement on the Department for Education, but its
second paragraph shows that the Department for Culture, Media
and Sport should also play a central role.
Article 14Education
1 Parties shall take, where appropriate, the necessary steps to include teaching material on issues such as equality between women and men, non-stereotyped gender roles, mutual respect, non-violent conflict resolution in interpersonal relationships, gender-based violence against women and the right to personal integrity, adapted to the evolving capacity of learners, in formal curricula and at all levels of education.
2 Parties shall take the necessary steps to promote the principles referred to in paragraph 1 in informal educational facilities, as well as in sports, cultural and leisure facilities and the media.
|
48. We note that the House of Commons Education Select
Committee is conducting an inquiry into the effectiveness of how
Personal, Social, Health and Economic Education (PSHE) and Sex
and Relationships Education (SRE) are taught in schools and whether
they should be statutory as part of the National Curriculum or
through some other method.
HOW WELL IS THE UK FULFILLING THE
POSITIVE OBLIGATIONS UNDER THE ISTANBUL CONVENTION?
49. The Government's Action Plan sets out the following
actions for the Department for Education:
a) to promote the teaching in schools of sexual
consent and the importance of healthy relationships;
b) to promote the outcomes from the newly established
Personal, Social, Health and Economic Education (PSHE) and Sex
and Relationships Education (SRE) expert subject group to help
provide support to teachers;
c) to pursue a range of channels to make suitable
materials available to schools on violence against women and girls
and related safeguarding issues, including the supplementary guidance
on SRE produced by the PSHE Association, the Sex Education Forum
and Brook; and
d) to work with partners, including the PSHE
Association, head and teacher associations and unions and the
Early Intervention Foundation, to give school staff effective
access to a range of information and resources on violence against
women and girls and related safeguarding issues.[49]
50. Emily Burnage, Preventative Education Project
Worker, RISE, said that: "there are pockets where there is
some really good work being done, but provision in terms of PSHE
and SRE is patchy, so it could be that some children and young
people are leaving school with very little information around
sex and relationships education". She added that in: "the
current climate in education where attainment is really important,
PSHE is one of those things that can go by the wayside".[50]
51. Sue Berelowitz, Deputy Children's Commissioner
for England, said: "PSHE, and relationships and sex education,
should be mandated across all schools."[51]
Although she acknowledged that PSHE needs to be "part of
a wider picture [
] It cannot be the only thing. It must
be matched by all the other work that needs to take place."[52]
The PSHE Association agreed: "We have long campaigned for
a statutory entitlement to PSHE education for every child, to
ensure that the subject is delivered by trained teachers, and
given sufficient time on the curriculum."[53]
52. Emily Burnage explained different schools' approaches
to delivering PSHE:
The issue with PSHE is how it is delivered. For
example, some schools might have one day a year when they will
do a condensed day and give all the subjects in one go and they
have then ticked the box, it has been covered, but is that a meaningful
way for young people? I do not think it is. What it needs to be
is embedded throughout, from reception and across the curriculum
as well. For example, I have given advice to RE teachers about
FGM and how we can talk about that in the context of RS, so it
is about looking and being creative about it is as well. However,
for PSHE, if you looked at different schools they would have different
models and would prioritise it differently as well.[54]
53. We hosted an online forum which asked parents
for their views and experiences of education for children about
violence against women and girls (see Appendix 1).[55]
77% of respondents thought that not enough was being done to educate
children about gender-related violence. The majority of parents
who posted in the forum argued that education needs to be improved
around relationships, consent and abuse, but there was less consensus
about the depth to which educational materials should go into
issues concerning violence against women and girls. Some argued
that better relationship education in schools was needed, which
would include content dealing with consent and abuse in relationships.
Several parents referred to the Freedom Programme. This Programme
is an awareness-raising programme to help women, who have previously
experienced abuse, spot the signs of abuse before they become
entrapped in a violent relationship. We presume these parents
wished for it to be adapted and used more widely as a preventative
tool amongst children and young people. The Programme's website
says:
The Freedom Programme examines the roles played
by attitudes and beliefs on the actions of abusive men and the
responses of victims and survivors. The aim is to help them to
make sense of and understand what has happened to them, instead
of the whole experience just feeling like a horrible mess. The
Freedom Programme also describes in detail how children are affected
by being exposed to this kind of abuse and very importantly how
their lives are improved when the abuse is removed.[56]
54. Other parents raised concerns about violence
against women and girls being included in educational materials,
suggesting, for example, that children "are taught too many
depressing things already" or that such education might "imply
a criticism of their own family members".
55. We held an informal meeting with Women's Aid
Young People's Advisory Panel. The young people who took part
believed that such education should be included in the curriculum
and that open discussion would help to break down the 'normalisation'
of violence against women and girls at a young age and teach young
women when and how to seek help (see Appendix 2). They also said
that teachers were the adults that they needed to trust and be
able to report things to, because it was unlikely that they would
have one-to-one contact with health or other frontline professionals.
One young person said that she had told a teacher about her home
situation but that it had been the 'wrong teacher'. We believe
that there should never be a 'wrong teacher' to disclose information
to because they have a safeguarding role under child protection
law and all teachers should be trained appropriately.
56. The Minister for Women outlined changes for
the training and allocation of frontline social workers but did
not outline any training being offered for school teachers on
these issues.
57. The evidence we received strongly suggested that
the teaching and discussion of these issues within schools is
patchy. Some schools demonstrate excellent policies, others use
charities to provide the teaching whilst others do nothing. This
means that using education as a key tool to prevent violence against
women is piecemeal and not all children are being reached. The
End Violence Against Women Coalition said "The Department
for Education, key to taking forward prevention measures, has
yet to deliver on its role".[57]
58. We note that the teaching of these issues is
complex: academies, free schools and independent schools are not
overseen by Local Education Authorities and instead adhere to
the Independent School Standards. The Government does, however,
set the Independent School Standards. The Minister for Women told
us that:
Ofsted will inspect all schools on the basis
of the spiritual, moral, social and cultural education that they
provide to their pupils. As we have recently seen, Ofsted will
not hesitate to challenge where they feel that a broad curriculum
is not meeting that spiritual, moral, social and cultural test.
We firmly believe that PSHE and a broad curriculum for life, which
would include the issues that you talked about, is very important.[58]
59. The PSHE Association, however, said: "PSHE
education is a non-statutory subject which is not assessed in
detail by Ofsted. This means that it is [not always] given a high
priority by schools, and is often taught by teachers who are not
trained in the subject. This low status of the subject means that
it does not meet the high standards required for teaching about
complex subjects such as gender-related violence."[59]
60. Responding to questions about how schools teach
these issues and whether the Government was providing guidance,
the Minister for Women said:
The teaching of sex and relationship education
is compulsory in secondary state-maintained schools. We understand
and believe that most other secondary schools follow that lead
[
] The Government's view is that there is space in the curriculum
for schools to teach personal, social, health and economic education,
which encompasses a wide range of issues. You have mentioned a
couple that are important: consent and violence against women
and girls [
] On consent education, the PSHE Association,
which the Department for Education has given some money to, has
been commissioned to produce education and guidance for teachers
on teaching about consent. That will be published shortly.[60]
61. In giving evidence to the Commons Education Committee
about what was included in the curriculum for PSHE, Mr Nick Gibb
MP, Minister of State for School Reform, Department for Education,
said:
We are continually being pressed to be prescriptive
on a whole range of issues, and we want to hold the line and say
that it is important to allow schools the autonomy to develop
their own curriculum outside the national curriculum area. We
could be prescriptive in a whole range of areas outside the national
curriculum, but you have to distinguish between the national curriculum
and the school curriculum. As far as the school curriculum is
concerned, it has to reflect local needs and the needs of the
pupils.[61]
62. Chris Green called for higher education establishments
to play a more active role in promoting awareness around these
issues:
The NUS is running a consent campaign and training.
It should not be up to the NUS to be running it. It should be
up to those campuses, and those managements of those institutions
themselves. Public Health England is funding one bystander pilot
programme. We are working on another one at Lincoln University
and they are running one at the University of the West of England.
But it ought not to be pilot programmes. It should be mandated
that new university students start to get consent education when
they start to move into this new environment.[62]
63. The young people we spoke to from Women's Aid
Young People's Advisory Panel, that were over 18 years old and
attended university, told us about their experiences of the culture
at university between men and women. One young person, who went
to a university in Nottingham, described her freshers events as
being characterised as sexist and sexual stereotypes were used
for events or marketing. During her time at university, she also
described that sexism was commonly disguised as 'banter' and was
seen everywhere. Another young person talked about support services
available for students who experience violence against women during
their time at university, or who may need help coming to terms
with things that happened to their family during childhood. She
argued that universities had greatly increased provision for mental
health services yet not for victims of domestic abuse. Another
young person argued that universities weren't doing enough to
support students who had been victims of gender based violence
and it was not featuring on the agenda of the universities.
64. We are aware that some higher educational establishments
are taking a proactive role in educating and raising awareness
amongst their students, including collaborative working between
Karma Nirvana and Derby College regarding forced marriage[63]
and the introduction of mandatory workshops about consent in some
colleges of Oxford and Cambridge.[64]
65. We acknowledge the work undertaken by some higher
educational establishments to educate their students, but we are
concerned at the responses to a survey conducted by the National
Union of Students which show a lack of awareness amongst students
of issues relating to violence against women and girls (see Appendix
3). 1,120 respondents from all over the UK responded to the survey.
The survey indicated that 57% of male respondents and 49% of female
respondents were aware of the law on consent. Respondents were
more likely to be aware of where to get advice or help for a sexually
transmitted infection (74% of women, 72% of men) and rape (54%
of women, 51% of men) than FGM (17% women, 20% of men) or coercive
marriage (14% of women, 20% of men). More than 50% of respondents
had not heard of any of the Government's campaigns to raise awareness,
indicating the limited reach these campaigns have.
66. The Department for Education has committed
itself under the Action Plan to pursue a range of channels for
making suitable materials available to schools on violence against
women and girls and related safeguarding issues. The Minister
for Women told us that the Government has also committed the PHSE
Association to producing guidance on education about consent.
We have not heard evidence that the Government is pursuing channels
to make materials available to schools, and the guidance on consent
has not yet been published. We consider that this must be published
before the UK is deemed to be fulfilling its positive obligations
under the Istanbul Convention. We recommend that guidance from
the Department for Education should go further than just consent
and include other issues relating to violence against women and
girlsfor example, FGM, forced marriage, sexual exploitation
and access to helplines. All forms of violence against women and
girls affect school-age children directly and personally and normalisation
of violence against women and girls occurs at a young age.
67. As a matter of practice, we also consider
that the UK would be in a stronger position to say that it is
fulfilling the requirements of Article 14 of the Istanbul Convention
if all schools were required broadly to teach the same curriculum
in relation to PSHE and we believe that this national curriculum
should include issues relating to violence against women and girls.
We believe this would also give Ofsted clear standards by which
to assess a school.
68. We also consider that higher education establishments,
not student unions, should be responsible for reinforcing this
education within the higher education system and therefore encourage
these establishments to follow the lead of those that already
have.
Training of professionals (Article
15)
69. Article 15 of the Istanbul Convention requires
relevant professionals to receive adequate training. This is a
policy and practice based requirement and crosses practically
all departments of state, and also includes health professionals,
social workers, teachers, job centre staff, the police and the
justice system. In this chapter we focus on training provided
for the judiciary. In Chapter 6 we look at the judiciary in more
detail and training for the police and in Chapter 7 we look at
training for immigration officials.
Article 15Training of professionals
1 Parties shall provide or strengthen appropriate training for the relevant professionals dealing with victims or perpetrators of all acts of violence covered by the scope of this Convention, on the prevention and detection of such violence, equality between women and men, the needs and rights of victims, as well as on how to prevent secondary victimisation.
2 Parties shall encourage that the training referred to in paragraph 1 includes training on co-ordinated multi-agency co-operation to allow for a comprehensive and appropriate handling of referrals in cases of violence covered by the scope of this Convention.
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HOW WELL IS THE UK FULFILLING THE POSITIVE OBLIGATIONS
UNDER THE ISTANBUL CONVENTION?
The judiciary
70. We heard that, whilst the police and Crown Prosecution Service
(CPS) are actively receiving training in the area of violence
against women and girls, little was being offered (let alone made
compulsory) for the judiciary. Vera Baird QC, Police and Crime
Commissioner for Northumbria, and a former Solicitor General,
said: "we have a highly male-dominated judiciary who frankly
are not, as I understand it, trained in domestic violence and
in my experience do not get it at all."[65]
In England and Wales, the Judicial College offers a three-day
programme which criminal judges must complete to hear rape cases.
Sheridan Greenland OBE, Executive Director of the Judicial College
told us: "there is no dedicated training or specific authorisation
required for non-sexual offences of assault or violence. Crimes
such as domestic abuse will feature within the normal continuation
training available to Crown Court judges particularly as a sentencing
exercise."[66]
71. Sheridan Greenland OBE said that training is
offered for judges acting in civil cases:
The Judicial College's family law courses last
covered honour-based violence in detail in judges' training in
2010-2012 when two speakersan academic from the University
of Warwick and a practising barristerdealt with this topic.
However, legislative and reference materials are available to
judges at all times. Applications for Forced Marriage Protection
Orders (FMPOs) can only be heard in certain courts. All judges
authorised to hear such applications have received appropriate
training.[67]
72. We heard, however, that the judiciary did not
always understand the most appropriate ways to deal with honour-based
cases. Rachel Horman, Solicitor and Head, Domestic Violence and
Forced Marriage Department at Watson Ramsbottom Solicitors, said
"I have seen civil court cases adjourned for family mediation
to take place to resolve it, which is very dangerous again and
has been seen in a lot of the honour killings that have gone on".[68]
73. In response to questions about how the judiciary
and police could better adhere to policies on violence against
women and girls, the Minister for Crime Prevention said: "There
are a series of improvements in criminal justice outcomes for
VAWG. There are increased referrals to the CPS. There are increases
in the volumes of prosecutions and convictions, and there are
improvements in the conviction rate [
] Basically, things
are going in the right direction."[69]
74. We welcome the requirement for judges who
hear rape cases to have been trained to do so but believe that
there is scope for the judiciary to educate themselves further
by establishing separate training for those who deal with cases
involving domestic violence. Given that family law is dealt with
in the civil courts and cases involving domestic violence are
heard in magistrates' courts, this training should be available
to both criminal and civil judges and magistrates.
Participation of the private
sector and media (Article 17)
75. The positive obligations under Article 17 (participation
of the private sector and media) of the Istanbul Convention are
practice-based requirements rather than policy or legislative
ones. Article 17 recognises the need for respect for freedom of
expression and the independence of the press.
Article 17Participation of the private sector and the media
1 Parties shall encourage the private sector, the information and communication technology sector and the media, with due respect for freedom of expression and their independence, to participate in the elaboration and implementation of policies and to set guidelines and self-regulatory standards to prevent violence against women and to enhance respect for their dignity.
2 Parties shall develop and promote, in co-operation with private sector actors, skills among children, parents and educators on how to deal with the information and communications environment that provides access to degrading content of a sexual or violent nature which might be harmful.
|
76. In looking at the regulation of the press in
this chapter, we note that broadcasters are regulated by Ofcom
which has statutory duties to regulate and can administer significant
fines and other punitive measures.[70]
Regulation of UK newspapers is currently uncertain. The Independent
Press Standards Organisation (IPSO) is a self-regulatory body,
which superseded the Press Complaints Commission (PCC), and upholds
the Editors' Code of Practice. However, not all newspapers are
members of IPSO. IPSO itself is not recognised under the recent
Royal Charter for press regulation.
77. The Government's Action Plan committed the Government
to working with media regulators and stakeholders "across
industry to ensure that suitable media content protections are
maintained".[71]
HOW WELL IS THE UK FULFILLING THE
POSITIVE OBLIGATIONS UNDER THE ISTANBUL CONVENTION?
Responsible reporting v Freedom of the press and
editorial independence
78. Jo Costello, from Ending Victimisation and Blame,
said that newspapers are not always responsible in their reporting
of crimes:
We have also had a 13 year-old girl who was pursued
aggressively by up to 200 men. This was a case of sexual exploitation.
Under the Telegraph headline, '13- year-old befriended
200 men online', yesterday, was, 'A 13-year-old girl from Fife
in Scotland is at the centre of a paedophile probe after contacting
around 200 men online and exchanging indecent images'. She is
being sexually exploited and yet the media are reporting it as
something she has instigated.[72]
79. Charlotte Dewar, Director of Complaints and Pre-publication
Services at IPSO, said that witnesses could sometimes be identified
by a news story:
It is extremely rare for them to be identified
as such, but information could be published, in breach of the
code, that contributes to a local community becoming aware of
who they are. Honestly, in terms of losing faith in human nature
there is really nothing like the community finding out the identity
of an 11 year-old or 12 year-old girl who has been the victim
of grooming or sexual assault by a teacher or another trusted
person and that child being subject to ostracism and blame and
shaming. I am aware of a number of those cases [
] It is
absolutely shocking. Once it gets to the stage of making a complaint,
to an extent that process is already under way and it is very
difficult because you cannot put that rabbit back in the box.[73]
80. Jo Costello echoed these concerns:
There was a recent breach of anonymity of a victim
of sexual violence by Sky News, which they apologised for immediately.
However, we have numerous concerns about journalists who are live-tweeting
court cases. They are in court hearing the evidence and tweeting
out what they are hearing. Although that information should be
anonymised, we, as women who work with broadcasters and regulators,
know the identity of some of those victims because we have been
able to work it out.[74]
81. Jo Costello also said that guidance and training
for individual journalists was already published but there was
a lack of sanction if they did not adhere to them:
The National Union of Journalists has really
basic guidance on reporting violence against women and girls.
It is just over two A4 sides long and gives lots of support services
at the end that journalists could refer to in order to report
properly on this issue. These were set up in 2013 and had previously
been on the members' area of the National Union of Journalists,
so were accessible only to members, so we were not aware of their
existence until somebody sent us a copy. We then contacted the
NUJ and asked them to move it to the public area of their website,
which they have done and they did it really promptly. We refer
many journalists who report poorly on this issue to these guidelines,
but there does not appear to be any kind of incentive for them
to refer to them in the first place or a sanction if they choose
not to adhere to them.[75]
82. Charlotte Dewar explained that IPSO would enforce
the Editors' Code of Practice:
What IPSO can do, and to give it credit what
the Press Complaints Commission did, is enforce those provisions
of the code very strictly and try to make editors as aware as
possible through training and other means of the extreme danger
of reporting around this area and the fact that often acts of
reporting court cases in good faiththis goes back to the
same pointcan have effects that no one would have hoped
for in doing that.[76]
She also explained that: "the Press Complaints
Commission upheld two complaints in the last couple of months
of its time."[77]
83. Tony Close, Director of Content Standards, Licencing
and Enforcement at Ofcom, told us how Ofcom assisted broadcasters
in abiding by the Ofcom Broadcasting Code:
Written guidance. Bringing them in in person
to explain the steps that they should take in order to avoid being
non-compliant with the code. If they fail to take our guidance
on board and fail to stick to the rules set out in the code, we
will incentivise them to comply in future by recording breaches
against them, hitting them with a large financial penalty, or
ultimately taking their licence away.[78]
Tony Close, when asked whether Ofcom had ever removed
a licence for this sort of issue or imposed a financial penalty,
said Ofcom had not.[79]
84. We acknowledge the difficulty the Government
has in this area in balancing freedom of the press with regulation.
We also sympathise with the Government in trying to engage with
publishers and broadcasters. We were greatly disappointed that
our publicly funded national broadcaster, the BBC declined all
invitations to give evidence to this inquiry.
85. In response to concerns regarding responsible
reporting, the Minister for Women said "We are not going
to tell people what they should and should not be reporting or
how they should be editing".[80]
She did, however, acknowledge that women putting together reports
for broadcasters will often challenge gender stereotypes in a
way that male reporters may not: "I do not want to generalise,
but it is very important that we have women in front-line media
positions and making editorial decisions."[81]
86. The Istanbul Convention invites the media
to self-regulate to help prevent violence against women and girls.
Whilst current regulatory standards may be appropriate, there
are clear examples where reporting of such violence has not been
sensitive or appropriate. Practice is falling short. We encourage
editors to take a proactive approach to educating their teams
about sensitively reporting violence against women and girls.
87. We recommend that regulators have the confidence
to use their powers to sanction, where necessary, broadcasters
or press who have fallen short of the Ofcom Broadcasting Code
or the Editors' Code of Practice.
Assistance to victims in making complaints
88. Jo Costello, from Ending Victimisation and Blame,
told us: "One thing that is difficult for our supporters
is knowing where to make a complaint in the first place".[82]
This was particularly the case for newspapers as there is currently
no single regulator.
89. Charlotte Dewar, Director of Complaints and Pre-publication
Services at IPSO, told us about the proactive role that IPSO play
in supporting victims:
Where we become aware of huge coverage around
an issue, particularly if it involves members of the public who
will not have legal representatives and press representatives
on hand, we will generallybecause in the immediate aftermath
of an event that person is going to be experiencing chaos and
they are not going to really know what is going on go via
the relevant service. That could be the police in many cases if
it is an issue of violence or it could be the hospital if someone
has been injured and they are in hospital. We will make contact
via an appropriate service.[83]
90. Charlotte Dewar also told us about pre-publication
services offered by IPSO as well as the ability of complaints
to be taken forward even if the victim did not make the complaint:
We do a lot of pre-publication anti-harassment
services [
] Leveson, and I know witnesses, called for representative
groups that work with victims of sexual violence to be able to
act on behalf of victims who may not be able to represent themselves
or may not even be aware of a regulatory function and so are essentially
not involved. That is something that IPSO does have. We do have
that ability. It is specifically in our regulations. Where there
is a significant public interest, we can take a complaint from,
say, a group that deals with refugees about a woman who may no
longer be in the country and so is not contactable or is vulnerable
and not in a position to represent herself. That is a really positive
change.[84]
Jo Costello called for assistance for victims to
be more formalised.[85]
91. There are currently a number of different
media or press regulators. It is not easy currently for victims
to understand their rights and the correct routes for redress.
We recommend that community liaison officers[86]
be trained in this work so that they can explain these rights
where necessary.
The portrayal of women in the media
92. In 2013, the UN Committee on the Elimination
of Discrimination against Women, in its concluding observations
on the seventh periodic report of the United Kingdom of Great
Britain and Northern Ireland, recommended that the UK: "Continue
to engage with the media to eliminate stereotypical imaging of
women and their objectification in the media, particularly in
advertising."[87]
93. The Government's Action Plan said that the Government
had completed the following action: "Ensure media literacy
tools are available to help people challenge body images and gender
stereotyping in the media."[88]
The Government's Action Plan commits the Gender and Equalities
Office to the following action by 2014-15:
Support the development of further resources
for young people of secondary school age, and their parents, to
improve their media literacy and resilience to low body image.[89]
94. Witnesses, however, were concerned that the media
objectified women and Caroline Lucas MP said in her written evidence
to us: "there is evidence that suggests a clear link between
consumption of sexualised images, a tendency to view women as
objects and the acceptance of aggressive attitudes and behaviour
as the norm".[90]
She also raised concern that "images that would be prohibited
on television or subject to the watershed [
] are sold entirely
without age restriction in shops, often at child's eye level."[91]
95. UK Feminista said: "There is extensive research
evidencing the very harmful impact both of treating women as sex
objects and portraying them as sex objects in the media. In relation
to the portrayal of women in the media, the American Psychological
Association (APA) report that viewing media which portrays women
as sex objects leads people to become significantly more accepting
of gender stereotyping, sexual harassment, interpersonal violence,
and rape myths. The APA also reveal that men are more likely to
treat women as sex objects and their behaviour towards women is
more sexualised after exposure to sexualised media."[92]
96. Peter Grant, Co-Director of Restored, said: "the
attitudes in society are probably moving in the wrong direction
in terms of our popular culture, in terms of the objectification
of women, in terms of the seeping of pornography into popular
culture."[93]
97. JAN Trust argued for 'lads mags' to be covered
up in shops. They acknowledged the right to freedom of expression
but argued:
Another possibility could be laws to keep magazines
with women objectified or sexualised on the cover ('lad mags'
such as Nuts, Zoo, FHM, GQ etc) from being sold in family newsagents,
shops or establishments, and where they are sold to be put on
the top shelf or behind modesty shields. This is not to attempt
to supress freedom of expression or enact censorshipwe
do not call for these publication[s] to be bannedbut simply
to acknowledge that communal, public spaces should avoid being
explicitly degrading to women and girls.[94]
98. With reference to what the Government was doing
to address these concerns, the Minister for Women said:
My colleague Jo Swinson [Parliamentary Under-Secretary
of State for Women and Equalities] has been working on something
called the body confidence campaign, which is about the way that
women and girls are portrayed in the media and not having unrealistic
models and role models. That really affects girls' self-esteem
and how they view themselves as they are growing up.[95]
99. We commend the supermarket chains, Tesco and
Waitrose, for responding to a campaign to remove the images and
headlines from certain newspapers from the eye-line of children
and call on others to follow this lead.[96]
We also commend the Government for taking action to encourage
the private sector to undertake initiatives to help promote positive
role models for girlsfor example, the body confidence campaign.
31 A Call to End Violence against Women and Girls,
Action Plan 2014: https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/287758/VAWG_Action_Plan.pdf
[accessed 24 December 2014] Back
32
New domestic abuse campaign launched: https://www.gov.uk/government/news/new-domestic-abuse-campaign-launched
[accessed 2 January 2015] Back
33
We need to drop Delilah song for being too violent, says singer:
http://www.bbc.co.uk/news/uk-wales-30432645 [accessed 4 January
2015]
Women's Aid England and Wales issue
statement on 'Delilah': http://www.womensaid.org.uk/domestic-violence-press-information.asp?itemid=3360&itemTitle=Women's+Aid+England+and+Wales+issue+statement+on+'Delilah'§ion=0001000100150001§ionTitle=Press+releases
[accessed 9 January 2015] Back
34
Violence against women and girls (VAWG) newsletter, Summer Edition
2014: https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/342982/VAWG_newsletter_Issue_8_v6__2_.pdf
[accessed 2 January 2015] Back
35
David Gadd, Claire L. Fox, Mary-Louise Corr, Ian Butler and Joanna
Bragg: From boys to men: overview and recommendations Back
36
Q 21 Back
37
Q 54 Back
38
Q 53 Back
39
Written evidence from End Violence Against Women Coalition (VAW0053) Back
40
Written evidence from JAN Trust (VAW0019) Back
41
Written evidence from the Bar Human Rights Committee of England
(VAW0035) Back
42
Written evidence from Northern Ireland Women's European Platform
(VAW0037) Back
43
Written evidence from Paul Valentine (VAW0007) Back
44
Written evidence from Cris McCurley (VAW0059) Back
45
Written evidence from the Lesbian and Gay Foundation (VAW0023) Back
46
Q 116 Back
47
Q 117 Back
48
Q 77 Back
49
A Call to End Violence against Women and Girls, Action Plan 2014:
https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/287758/VAWG_Action_Plan.pdf
[accessed 24 December 2014] Back
50
Q 60 Back
51
Q 51 Back
52
Q 53 Back
53
Written evidence from PSHE Association (VAW0068) Back
54
Q 60 Back
55
The responses given by members of the public have been anonymised
but respondents were aware that their answers might be quoted
in the Committee's Report and other papers. Back
56
http://www.freedomprogramme.co.uk/ Back
57
Written evidence from End Violence Against Women Coalition (VAW0035)
Back
58
Q 113 Back
59
Written evidence from PSHE Association (VAW0068) Back
60
Q 113 Back
61
Oral evidence taken by the Education Committee, 17 December 2014
(Session 2014-15), Q 393 Back
62
Q 54 Back
63
Derby College tackles forced marriage: http://www.bbc.co.uk/news/education-26923056
[accessed 9 January 2015] Back
64
Oxford and Cambridge University sexual consent courses start:
http://www.bbc.co.uk/news/uk-england-29503973 [accessed 9 January
2015] Back
65
Q 64 Back
66
Written correspondence from Sheridan Greenland OBE (VAWG (14-15)
033) Back
67
Ibid. Back
68
Q 76 Back
69
Q 126 Back
70
Ofcom operates under a number of Acts of Parliament, including
in particular the Communications Act 2003. The Communications
Act says that Ofcom's principal duty is to further the interests
of citizens and of consumers, where appropriate by promoting competition:
http://www.ofcom.org.uk/about/what-is-ofcom/ [accessed 2 January
2015] Back
71
A Call to End Violence against Women and Girls: Action Plan 2014:
https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/287758/VAWG_Action_Plan.pdf
[accessed 2 January 2015] Back
72
Q 95 Back
73
Q 95 Back
74
Ibid. Back
75
Q 100 Back
76
Q 95 Back
77
Q 97 Back
78
Q 99 Back
79
Ibid. Back
80
Q 123 Back
81
Ibid. Back
82
Q 93 Back
83
Q 98 Back
84
Ibid. Back
85
Ibid. Back
86
Community Liaison Officers are police officers who can give victims
advice or put them in touch with other organisations who may be
able to access support. For example: http://www.kent.police.uk/about_us/diversity/pages/comm_liaison.html
[accessed 14 January 2015] Back
87
The CEDAW Committee's Observations and Recommendations: https://www.gov.uk/government/news/the-cedaw-committees-observations-and-recommendations-published
[accessed 24 December 2014] Back
88
A Call to End Violence against Women and Girls: Action Plan 2014:
https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/287758/VAWG_Action_Plan.pdf
[accessed 2 January 2015] Back
89
A Call to End Violence against Women and Girls: Action Plan 2014:
https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/287758/VAWG_Action_Plan.pdf
[accessed 2 January 2015] Back
90
Written evidence from Caroline Lucas MP (VAW0054) Back
91
Ibid. Back
92
Written evidence form UK Feminista (VAW0017) Back
93
Q 57 Back
94
Written evidence from Jan Trust (VAW0019) Back
95
Q 123 Back
96
For example, Tesco and Waitrose removed newspapers from the eye
line of small children: http://www.bbc.co.uk/news/uk-politics-30157742
[accessed 24 December 2014]. Back
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