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U.S. DEPARTMENT OF JUSTICE OFFICE ON 

VIOLENCE AGAINST WOMEN 

HEARING 

BEFORE THE

SUBCOMMITTEE ON CRIME, TERRORISM, 

AND HOMELAND SECURITY 

OF THE

COMMITTEE ON THE JUDICIARY 

HOUSE OF REPRESENTATIVES 

ONE HUNDRED TWELFTH CONGRESS 

SECOND SESSION 

FEBRUARY 16, 2012 

Serial No. 112–155 

Printed for the use of the Committee on the Judiciary 

( 

Available via the World Wide Web: http://judiciary.house.gov 
(II) 

COMMITTEE ON THE JUDICIARY 

LAMAR SMITH, Texas, Chairman 

F. JAMES SENSENBRENNER, JR., 

Wisconsin 

HOWARD COBLE, North Carolina 

ELTON GALLEGLY, California 

BOB GOODLATTE, Virginia 

DANIEL E. LUNGREN, California 

STEVE CHABOT, Ohio 

DARRELL E. ISSA, California 

MIKE PENCE, Indiana 

J. RANDY FORBES, Virginia 

STEVE KING, Iowa 

TRENT FRANKS, Arizona 

LOUIE GOHMERT, Texas 

JIM JORDAN, Ohio 

TED POE, Texas 

JASON CHAFFETZ, Utah 

TIM GRIFFIN, Arkansas 

TOM MARINO, Pennsylvania 

TREY GOWDY, South Carolina 

DENNIS ROSS, Florida 

SANDY ADAMS, Florida 

BEN QUAYLE, Arizona 

MARK AMODEI, Nevada 

JOHN CONYERS, JR., Michigan 

HOWARD L. BERMAN, California 

JERROLD NADLER, New York 

ROBERT C. ‘‘BOBBY’’ SCOTT, Virginia 

MELVIN L. WATT, North Carolina 

ZOE LOFGREN, California 

SHEILA JACKSON LEE, Texas 

MAXINE WATERS, California 

STEVE COHEN, Tennessee 

HENRY C. ‘‘HANK’’ JOHNSON, JR., 

Georgia 

PEDRO R. PIERLUISI, Puerto Rico 

MIKE QUIGLEY, Illinois 

JUDY CHU, California 

TED DEUTCH, Florida 

LINDA T. SA ́ NCHEZ, California 

JARED POLIS, Colorado 

SEAN MCLAUGHLIN, Majority Chief of Staff and General Counsel 

PERRY APELBAUM, Minority Staff Director and Chief Counsel 

SUBCOMMITTEE ON CRIME, TERRORISM, AND HOMELAND SECURITY

F. JAMES SENSENBRENNER, JR., Wisconsin, Chairman 

LOUIE GOHMERT, Texas, Vice-Chairman 

BOB GOODLATTE, Virginia 

DANIEL E. LUNGREN, California 

J. RANDY FORBES, Virginia 

TED POE, Texas 

JASON CHAFFETZ, Utah 

TIM GRIFFIN, Arkansas 

TOM MARINO, Pennsylvania 

TREY GOWDY, South Carolina 

SANDY ADAMS, Florida 

MARK AMODEI, Nevada 

ROBERT C. ‘‘BOBBY’’ SCOTT, Virginia 

STEVE COHEN, Tennessee 

HENRY C. ‘‘HANK’’ JOHNSON, JR., 

Georgia 

PEDRO R. PIERLUISI, Puerto Rico 

JUDY CHU, California 

TED DEUTCH, Florida 

SHEILA JACKSON LEE, Texas 

MIKE QUIGLEY, Illinois 

JARED POLIS, Colorado 

CAROLINE LYNCH, Chief Counsel 

BOBBY VASSAR, Minority Counsel 
(III) 

C O N T E N T S 

FEBRUARY 16, 2012 

Page 

OPENING STATEMENTS 

The Honorable F. James Sensenbrenner, Jr., a Representative in Congress 

from the State of Wisconsin, and Chairman, Subcommittee on Crime, Terrorism, and Homeland Security .......................................................................... 1 

The Honorable Robert C. ‘‘Bobby’’ Scott, a Representative in Congress from 

the State of Virginia, and Ranking Member, Subcommittee on Crime, Terrorism, and Homeland Security .......................................................................... 3 

The Honorable Lamar Smith, a Representative in Congress from the State 

of Texas, and Chairman, Committee on the Judiciary ..................................... 4 

WITNESS 

Susan B. Carbon, Director, Office of Violence Against Women, U.S. Department of Justice 

Oral Testimony ..................................................................................................... 6 

Prepared Statement ............................................................................................. 8 

(1) 

U.S. DEPARTMENT OF JUSTICE OFFICE ON 

VIOLENCE AGAINST WOMEN 

THURSDAY, FEBRUARY 16, 2012 

HOUSE OF REPRESENTATIVES,

SUBCOMMITTEE ON CRIME, TERRORISM,

AND HOMELAND SECURITY, 

COMMITTEE ON THE JUDICIARY, 

Washington, DC. 

The Subcommittee met, pursuant to call, at 10 a.m., in room 

2141, Rayburn Office Building, the Honorable F. James Sensenbrenner, Jr., (Chairman of the Subcommittee) presiding. 

Present: Representatives Sensenbrenner, Smith, Goodlatte, Poe, 

Chaffetz, Gowdy, Adams, Scott, Johnson, and Chu. 

Staff present: (Majority) Caroline Lynch, Subcommittee Chief 

Counsel; Sarah Allen, Counsel; Harold Damelin, Counsel; Allison 

Rose, Professional Staff Member, Lindsay Hamilton, Clerk; (Minority) Bobby Vassar, Subcommittee Chief Counsel; Ron LeGrand, 

Counsel; and Aaron Hiller, Counsel. 

Mr. SENSENBRENNER. The Subcommittee will be in order. 

The Chair recognizes himself for an opening statement. 

Good morning, Director Carbon, and welcome to the Subcommittee. 

Today we will conduct an oversight hearing on the Office of Violence Against Women at the United States Department of Justice, 

which you have headed since early 2010. 

OVW was originally created in 1995 within the Office of Justice 

Programs at the Justice Department to implement the various 

grant programs established in 1994 by the passage of the Violence 

Against Women Act. In 2003, the Attorney General established 

OVW as a separate office outside of OJP where it remains today. 

The Violence Against Women Act, or VAWA, is an important law 

that has helped countless numbers of victims across the country 

deal with domestic violence and sexual assault. I have been a 

strong supporter of the act from the time of its initial passage and 

continuing through its two reauthorizations in 2000 and 2005, the 

last of which I was the principal author of. 

VAWA established essential programs that support efforts to prevent and prosecute crimes of domestic violence, dating violence, 

sexual assault, and stalking, and to provide assistance and services 

to the women who are the victims of these crimes. Over the years, 

its reach has been expanded to help both the young and the elderly. Across the Nation, OVW’s programs support the work of victim 
2 

advocates, attorneys, counselors, law enforcement personnel, prosecutors, health care providers, and emergency shelters. 

Since its inception, OVW has awarded over $4.7 billion in grants 

and cooperative agreements to fund and support programs established by the 1994 law and its subsequent reauthorizations. Although there exists bipartisan support for OVW’s mission, in these 

very difficult economic times where the Federal Government must 

drastically reduce its spending, we simply cannot continue to allocate resources without verifying that they are being used as effectively and efficiently as possible. 

In this context, today we examine OVW’s grant programs and 

the office’s performance. I am interested to learn what the office is 

doing to address possible duplication among the different OVW 

grant programs and between other Justice programs. 

I am also interested to learn more about OVW’s grant oversight 

efforts. Both the Justice Department’s Inspector General and the 

General Accounting Office have identified what I consider to be significant problems with respect to OVW’s grant management. Between 2005 and 2011, the IG conducted a number of audits of OVW 

grant recipients. These reports detail a series of violations of grant 

requirements ranging from very significant amounts of unsupported or unallowable expenditures to sloppy record keeping and 

failure to file required reports accurately and in a timely manner. 

The violations include a July 2010 grantee audit report where 

the IG considered nearly $830,000 of an $890,000 OVW grant as 

unsupported or unallowable expenditures; a March 2009 audit report of another OVW grantee about which the IG questioned as 

unsupportable or unallowable expenditures of $477,000 of a 

$681,000 OVW grant; and a September 2005 OVW grantee audit 

report in which the IG found over $1.2 million of a $1.9 million 

grant to be unsupportable or questionable expenditures. This is all 

taxpayers’ money that may not have gone toward the intended purpose of helping victims of domestic violence or sexual assault. 

These IG reports cause me to wonder what grant monitoring procedures OVW has in place that allowed this type of grant abuse to 

occur. As we move forward, these problems need to be addressed 

and corrected during the life of the grant, not after the grant funds 

have already been expended and the IG comes in to do an audit. 

The acting IG recently testified before another House Subcommittee on the topic of Federal grant program oversight. In the 

course of her testimony, she referenced a 2010 audit of OVW where 

several errors were found by OVW peer reviewers in the calculation of the grant application scores, resulting in the incorrect ranking of some grant applications and the possible denial of grants to 

qualified applicants. 

The IG also pointed out that the same audit report discovered a 

number of instances where OVW peer reviewers were not properly 

screened for potential conflicts of interest before they were allowed 

to evaluate and score grant applications. 

Lastly, the IG pointed out a 2006 audit report dealing with the 

grant close-out process in which the IG recommended that OVW resolve $37 million in questioned costs and de-obligate another $14 

million. The IG noted that we have had multiple communications 
3 

with OVW since we issued our report in 2006, but OVW has yet 

to fully resolve these recommendations. 

These are serious concerns pointed out by the IG, and I would 

like to know what OVW has done to address them. It is essential 

that we be able to determine how effective VAWA programs are 

and whether grantees are providing adequate services for the 

amount of funding they receive. We need to be sure that the population we are trying to help, the victims of domestic violence and 

sexual assault, are actually getting the services that they need. 

I thank the director for appearing, and I now recognize the 

Ranking Member of the Subcommittee, the gentleman from Virginia, Mr. Scott. 

Mr. SCOTT. Thank you, Mr. Chairman, and thank you for holding 

this hearing on the Office of Violence Against Women. And I thank 

Ms. Carbon for being with us today. 

The Office of Violence Against Women was created specifically to 

implement the Violence Against Women Act. By fostering extensive 

partnerships, OVW facilitates the creation of programs, policies, 

and practices aimed at ending domestic violence, dating violence, 

sexual assault, and stalking. Through formula programs, State coalitions, and discretionary grant programs, OVW has been very successful in supporting victims and holding perpetrators accountable 

through promoting a coordinated community response. 

Mr. Chairman, we have the responsibility to make sure that the 

grant programs are being administered effectively, and in July 

2010, as part of an audit report, the Department of Justice’s Office 

of Inspector General concluded that OVW worked quickly to make 

Recovery Act grants through a broad range of initiatives and that 

the grant selection process was transparent and objective. 

The OIG’s report cited five areas for improvement that included 

adjustments in the peer review process, tighter internal controls, 

more effective maintenance, and others, and OVW has concurred 

and has made the recommended changes. OVW’s commitment to effectively managing its grant programs is demonstrated by the 

adoption of the OIG’s recommendations and the establishment of a 

grants financial management division. This unit enables OVW to 

be much more proactive, scrutinize budgets more closely, and identify other issues before they become problems. 

OVW programs and services have not only provided lifesaving 

services for victims and their children across the country, but have 

also yielded significant monetary benefits and averted victimization 

costs. A 2002 University of North Carolina cost-benefit analysis of 

the Violence Against Women Act of 1994 reported the net benefit 

of the bill is estimated to be $16.4 billion. Because the cost is only 

$1.6 billion, $14.8 billion in averted victimization costs would be 

saved after the implementation of the act. On an individual level, 

VAWA is estimated to cost about $15.50 per U.S. woman and 

would be expected to save over $159 per woman in averted costs 

of criminalization. And so this shows that this is a fiscally responsible program. 

And it is still needed. In Virginia, one our of three homicides are 

related to family and intimate partner violence. Domestic violence 

programs in Virginia are seeing an escalation of violence resulting 

in increased demand for services. According to the Department of 
4 

Justice, the rate of domestic violence triples when economic strain 

increases. The dynamics that fuel domestic violence can be exacerbated by an abuser cycling in and out of employment and a family’s 

inability to pay bills and the threat of losing housing. 

When asked, through a statewide survey of recipients of Virginia’s domestic violence services, the question was asked, what 

would you have done if the shelter had not existed? 22 percent of 

service recipients indicated that they would have been homeless. 21 

percent said they would have been compelled to return to their 

abusers, and 10 percent believed that they would be dead by now 

at the hands of their abusers. 

The Virginia Sexual and Domestic Violence Alliance reports that 

in 2009, agencies located in my congressional district responded to 

almost 12,000 hotline calls, provided advocacy services for over 

2,000 adults and 664 children, provided emergency shelter to 427 

adults and 400 children, but they had to turn away 148 families 

in my congressional district due to lack of shelter. 

Additionally in 2009, almost half the victims receiving advocacy 

services reported that they had missed time from work or school 

or lost income as a result, and 28 percent of victims receiving services had to relocate or became homeless as a result of domestic violence. 

So, Director Carbon, we look forward to your testimony and look 

forward to continuing to work with you. 

Thank you, Mr. Chairman. 

Mr. SENSENBRENNER. The Chair recognizes the Chairman of the 

full Committee, the gentleman from Texas, Mr. Smith. 

Mr. SMITH. Thank you, Mr. Chairman. 

The Office of Violence Against Women, which Director Carbon 

has headed since early 2010, plays an important role in our ongoing battle against domestic violence, dating violence, stalking, and 

sexual assault. It administers and oversees the various programs 

authorized by the Violence Against Women Act, also known as 

VAWA, and I have been a strong supporter of the act since its enactment in 1994. 

The Office on Violence Against Women was last authorized in 

2006. Today’s hearing is the first step in the Judiciary Committee’s 

review of VAWA and consideration of its reauthorization. 

The Federal Government faces significant long-term budgetary 

constraints. Agencies must get by with less. In this environment, 

the Office on Violence Against Women must focus its resources on 

its most efficient programs that allow it to accomplish the greatest 

good. Congress will not fund programs that are ineffective or waste 

money. 

But with that in mind, I hope the testimony today will highlight 

what this legislation has allowed the office to accomplish. 

I also look forward to hearing your thoughts, Director Carbon, on 

how the grant programs can be streamlined, consolidated, or even 

eliminated to achieve the greatest efficiencies possible. 

I would like to mention two examples that demonstrate how this 

legislation has helped many people. 

In February 1996, after having been authorized by the act, the 

Austin, Texas-based Texas Council on Family Violence launched 

the National Domestic Violence Hotline. Since that time, the group 
5 

has answered nearly 2.5 million calls and saved many injuries and 

lives. The hotline is a life line for victims of domestic violence and 

their families. Over the past 15 years, the hotline has provided victims with crisis counseling, information on legal advocacy, shelters, 

and health care facilities. When a victim has the courage to reach 

out for help, the hotline is there to guide them to a safe place and 

connect them to the resources they need. The National Domestic 

Violence Hotline is one of the most important services we can offer 

individuals and families who are in crisis. I am glad to have this 

beacon of hope in my home State of Texas. 

The Bexar County Family Justice Center opened its doors in August 2005, thanks to funding from VAWA. The center currently occupies over 11,000 square feet of office space in downtown San Antonio. Today it has over 40 on- and off-site partners who use a local 

coordinated community response to deal with the problem of domestic violence and provide comprehensive service to victims. 

These services include assistance with law enforcement and prosecution, employment and educational services, counseling, civil 

legal services, child care and therapy, health care, food, clothing, 

and housing assistance and emergency shelter. Each client of the 

center has the ability to see any service provider at no charge. The 

center serves over 3,700 adults and 2,700 children a year. It is essential that programs like these are in place to protect victims not 

just from physical bruises but from the emotional and mental scars 

as well. 

Funding through VAWA has helped women escape abuse and rebuild their lives. I hope that this hearing will bring to light ways 

that we can continue and improve programs through the Office on 

Violence Against Women. 

Thank you, Mr. Chairman. I yield back. 

Mr. SENSENBRENNER. I thank the Chairman. 

Without objection, all Members’ opening statements will be included in the record at this point. 

I will now introduce today’s witness. Susan Carbon is Director of 

the Justice Department’s Office of Violence Against Women, or 

OVW. Prior to serving as director of OVW, she served as supervisory judge of the New Hampshire Judicial Branch, Family Division from 1996 to 2010. Director Carbon was also a member of the 

Governor’s Commission on Domestic and Sexual Violence and 

chaired New Hampshire’s Domestic Violence Fatality Review Committee. She also served as president of the National Council Juvenile and Family Court Judges from 2007 to 2008 and was the president of the New Hampshire State Bar Association in 1993 and 

1994. 

She is a graduate of the University of Wisconsin, Madison, and 

then she didn’t stay in Wisconsin to pay income taxes that helped 

pay for her education and left for the DePauw University College 

of Law. [Laughter.] 

The witness’ written statement will be entered into the record in 

its entirety. I ask that Ms. Carbon summarize her testimony in 5 

minutes or less, and to help you stay within that time limit, you 

have got the blinking lights in front of you. I now recognize Ms. 

Carbon. 
6 

TESTIMONY OF SUSAN B. CARBON, DIRECTOR, OFFICE OF 

VIOLENCE AGAINST WOMEN, U.S. DEPARTMENT OF JUSTICE 

Ms. CARBON. Thank you very much, Chairman Sensenbrenner— 

and I will do my best to assure that taxes are paid—Chairman 

Smith, Ranking Member Scott, and Members of the Committee, for 

the opportunity to speak with you today about the work of the Office on Violence Against Women, or OVW, and the success of the 

Violence Against Women Act programs. 

Although violent crime generally has decreased nationwide, domestic violence, dating violence, sexual assault, and stalking, the 

crimes which are the focus of our office, still devastate the lives of 

an extraordinary number of women, men, youth, and children. One 

in five women have been raped in their lifetimes. One in four 

women and one in seven men have experienced severe physical violence at the hands of an intimate partner. 

Given the long-term consequences for victims, their children, and 

our communities, the grant programs authorized under VAWA are 

an investment in our Nation’s future, and we are immensely grateful for your support over these past 18 years. 

OVW-administered VAWA funding has led to significant improvements in the civil and criminal justice systems encouraging 

victims to report these crimes, improving evidence collection in sexual assault and domestic violence cases, and increasing the 

issuance and enforcement of protection orders. With OVW leadership, communities are forging effective partnerships across disciplines to help victims reclaim their lives and hold offenders accountable. 

For instance, an OVW-funded law enforcement officer in Dauphin County, Pennsylvania reports that a new partnership with a 

victim advocate allows him—and I quote—to obtain more detailed 

statements and collect evidence, which might have been initially 

overlooked, and then to bring more serious charges. 

Many victims also first turn to their faith communities. So the 

City of Spartanburg, South Carolina has used OVW funds to train 

230 ministers to date on effective responses to domestic violence. 

The impact of this OVW programming is evident. The increased 

availability of legal services has contributed to a significant reduction in domestic violence. Obtaining a protection order has been 

shown in several studies to reduce future assault and enhance victim safety and well-being. 4 years after Milwaukee implemented a 

specialized prosecution unit, felony convictions had increased fivefold. Thanks to these types of programs, FBI data showed that between 1993 and 2010, the number of individuals killed by an intimate partner declined 30 percent for women and 66 percent for 

men. 

These programs not only save lives, they save money. A 2002 

study found that by reducing these crimes and the subsequent 

costs to the criminal justice and health care systems, VAWA saved 

an estimated $12.6 billion in net averted social costs in its first 6 

years alone. 

As a family court judge in New Hampshire, I saw firsthand what 

can happen when VAWA services such as legal assistance and 

transitional housing are not always available. Not only did I see 

the adults back in my courtroom, but I also saw their children in 
7 

child protection cases and their teens in drug court and on our delinquency dockets. VAWA’s most profound impact and outcome may 

be breaking the cycle of violence by reaching children and youth. 

We at OVW are committed to using every dollar of VAWA funding prudently. We take very seriously our grant-making responsibilities and we are dedicated to managing our grant programs effectively and with transparency. As my written statement reflects, 

I have instituted several changes to our policies and practices that 

reflect my commitment to sound financial management. 

The difficult economy has brought challenges to both victims and 

the programs that serve them. States are struggling to keep shelters and rape crisis centers open, as well as maintain police, prosecutors, probation officers, and even judges. Now more than ever, 

we must invest in innovative ways to prevent violence. OVW is 

using the most current research to target our resources. New initiatives, such as preventing domestic violence homicides, and funding the Austin, Texas-based National Dating Abuse Help Line to 

include text messaging. Since launching that text capacity last September, the help line has conducted over 10,000 chat and text conversations with young people in need. 

I cannot stress enough how critical it is for Congress to reauthorize VAWA once again and to use this opportunity to sustain and 

strengthen our Nation’s commitment and capacity to end violence 

against women. I look forward to continuing to work with you to 

improve OVW administration and our grant programs to combat 

sexual assault, domestic violence, dating violence, and stalking. 

I thank you very much for your interest in this critically important work, and I am very happy to take your questions. 

[The prepared statement of Ms. Carbon follows:] 
8 

ilepurlment of J'ustire 

STATEMENT OF 

SUSAN B. CARBON 

DiRECTOR OF THE OFFICE ON VIOLENCE AGAINST WOMEN 

BEFORE THE 

COMMITTEE ON THE JUDiCIARY 

UNITED STATES HOUSE OF REPRESENTATIVES 

SUBCOMMITTEE ON CRIME, TERRORISM AND HOMELAND SECURITY 

ENTITLED 

OVERSIGHT OF THE OFFICE ON VIOLENCE AGAINST WOMEN 

PRESENTED 

February 16,2012 
9 

Testimony of Snsan B. Carbon, Director 

Office on Violence Against Women 

lJ nited States Department of Justice 

Oversight of the Office on Violence Against Women 

United States House of Representatives Committee on the Judiciary 

Subcommittee on Crime, Terrorism and Homeland Security 

February 16,2012 

Introduction 

Thank you, Chairman Sensenbrenner, Ranking Member Scott, and members of the Committee 

for the opportunity to speak with you today. My name is Susan Carbon, and I am the Director of 

the Office on Violence Against Women (OVW) in the Department of Justice (DOJ) I am here 

today to discuss the work ofOVW in implementing the Violence Against Women Act (VA WA), 

and the vital role that V A W A has played in our collective efforts to respond to the crimes of 

domestic violence, dating violence, sexual assault and stalking by enhancing victim safety and 

autonomy, increasing the availability of victim services, and improving offender accountability. 

The mission of OVW is to provide federal leadership in developing the nation's capacity to 

reduce violence against women and administer justice for and strengthen services to victims. A 

key role of OVW is to provide tinancial and technical assistance to communities across the 

country that are developing programs, policies, and practices aimed at ending domestic violence, 

dating violence, sexual assault, and stalking. The services that OVW funds under VA W A are 

available to a wide range of individuals. Grants help victims who are women, men, teenagers, 

children, elderly, living in rural areas, college students, middle or high school students, persons 

with disabilities, and persons from many different culturally and linguistically specific 

populations. VA W A programs fund states, territories, local governments, tribal governments, 

courts, police, prosecutors, non-profit victim services organizations, colleges and universities, 

state, territorial and tribal sexual assault and domestic violence coalitions, homeless service 

providers, and community based programs, including faith-based organizations 

Domestic Violence, Dating Violence, Sexual Assault, and Stalking 

Although violent crime has decreased nationwide, the crimes of domestic violence, dating 

violence, sexual assault, and stalking still devastate the lives of too many women, men, youth, 

and children. Since then-Senator Biden brought national attention to crimes ofviolence against 

women in hearings in 1990, we have learned more about their shocking prevalence. One in 

every four women and one in every seven men have experienced scwrc physical violence by a 

current or former spouse, boyfriend, or girlfriend.' Stalkers victimize approximately 5.2 million 

women and 1.4 million men each year in the US, with domestic violence-related stalking the 

1 Black. M.e, Basile, K.C., Breiding, M.1., Smith, S.G., Walters, ML, Merrick, M.T.. Chen, 1.. & Stevens, M.R. 

(2011). The National Intimate Partner and Sexual T'iolence Su!1'~V (NL~r ;~): 2010 Summon' Report. Atlanta, GA: 

National Ccnter for Injury Prevention and Control. Centers for Disease Control and Prevention. 

2 
10 

most common type of stalking and often the most dangerous 2 One in ten 9th_Iih grade students 

were physically hurt on purpose by a boyfriend or girlfriend in 2009 alone 3 One in tlve women 

and one in 71 men have been raped in their lifetimes, and nearly 1.3 million women in the U.S. 

are raped every year 4 The statistics are sobering - even more so with our understanding that 

these types of crimes are often the most underreported. Many victims sutTer in silence without 

confiding in family and friends, much less reaching out for help from hospitals, rape crisis 

centers, shelters, or even the police. 

Increasingly, we are learning more about the overwhelming numbers of children exposed to 

violence and the insidious effects of this exposure. A recent DOJ-funded study concluded that a 

majority of children in the United States have been exposed to violence, crime, or abuse in their 

homes, schools, and communities.' Approximately 15.5 million children are exposed to 

domestic violence every year." The consequences of this problem are significant and 

widespread. Children's exposure to violence, whether as victims or witnesses, is often 

associated with long-term physical, psychological, and emotional hann 7 Children exposed to 

violence are also at a higher risk of engaging in criminal behavior later in life and becoming part 

of a cycle ofviolence 8 I am honored to work for an Attorney General who has been personally 

and professionally committed to this issue for many years. 

'Black. Basilc. Breiding. Smith, Waitcrs. Merrick. Chen & Ste\ens, 2011. 

'Eaton. D. K .. Kaml. L.. Kinche!l. S .. Shanldin. S., Ross, 1, Hawkins, 1, Harris, W. A. Lowry. R., McManus, L 

Chyen, D .. Lim. C .. Whittle, L., Brener, N. D .. & Wechsler, H. (2010, June ~). Youth risk behavior surveillanceUnited States. 2009. Morbidity andMortalil)! l/'eeklvReport Suneillance Summaries, 59(SS-5). 1-1~2. 

~ Black Basile. Breiding. Smitll. Walters, Merrick, Chen & Stevens, 2011. 

5 Finkclhor. D .. Turner, H., Onmod. R .. Hamby, S .. & Kracke. K. (2009). Children's exposure 10 violence: ~'1 

comprehensive national sunJe:v. Juvenile Juslice Bulletin (No. NCJRS 2277-1--1-), \Vashillgton, DC: Office of Juvenile 

Justice and Delinquency Prevention. 

'McDonald, R, Jouriles. E. N .. Ramiselly-Mikler, S .. Cael1no. R. & Green C. E. (2006). Estimating the number of 

American children living in partner-violence families. Journal ojFamily Psvchologv, 20(1). 137-1~2. 

-Dube, S .. Felilli, V .. Dong, M., Giles. W .. & Anda, R (2003). The impact or adverse childhood experiences on 

health problems: Evidence from four birth cohorts dating back to 1900. Preventive MediCine, 37(3). 268-277. 

8 Gorman-Smith. D., Tolan, P. H .. Sheidow, A. J .. & Henry, D. B. (2001). Pannerviolenee and street violence 

.mlOng urban adolescents: Do the same family factors relate? Journal of Research on Adolescence. 11(3).273-95. 

Foshee. V. A., Benefield, T. S .. Ennett, S. L Bauman, K. E., & Suchindran. C. (200~). Longitudinal predictors of 

serious physical and sexual dating violence victimization during adolescence. Preventive l\jedicine, 39(5). 51007-

16. 

Foshee, V. A .. Ennell, S. L Bauman, K. E., Bencric1d. T.. & Suehindran, C.(2005). nle association between ramily 

violence and adolcscent dating violence onsct: Docs it vary by race. socioeconomic status, and family stmcture? 

Journal ojEarlv Adolescence, 25(3). 317-~4. 

Lavoie, F .. Robitaille, L .. Hebert. M., Tremblay, F., Vitaro, F .. Vb.ina, L .. & MeDuIT, P. (2002). History or ramil" 

dysfmlction and perpetmtion of dating violence by adolescent boys: A longitudinal study. Journal ojAdolescent 

Health. 30(5). 375-83. 

Cyr, M .. McDuff. P. & Wright. J. (2006). Prevalence and predictors of dating violence among adolescent female 

victims of child sexual abuse. Journal o(Interpersonal Violence, 21(8), 1000-17. 

Weltede, C .. & Wolfe. D. A. (1999). Dating violence in mid-adolescence: Theory. significance. and emerging 

prevention initiatives. Clinical Psychologv Rel'iew. 19(4), ~35-56. 

Wolre. D. A. (2011). Risk raetors ror child abuse perpetration. In J. W. White. M. P. Koss. & A. E. Kazdin (Eds.), 

Violence againstll'omen and children: Mapping the terrain. Volullie 1 (pp. 31-54). Washington, DC: American 

Psychological Association. 

Knight, R. A .. & Sims-Knight. J. (2011). Risk raetors ror sexual violence. In J. W. White, M. P. Koss, & A. E. 

Kazdin (Eds.). ('iolence against women and children: Mapping the terrain. ('olume I (pp. 125-150). Washington 

DC: American Psychological Association. 

3 
11 

The Violence Against Women Act 

Given the continued prevalence of the crimes of domestic violence, dating violence, sexual 

assault and stalking and the serious ongoing consequences to victims, their children and our 

communities, the grant programs authorized under VA W A are an investment in our nation's 

future. Congress recognized the severity of these serious crimes and our need for a national 

strategy with the enactment ofVAWA in 1994. This landmark federal legislation's 

comprehensi ve approach to violence against women combined tough new penalties to prosecute 

offenders with programs to provide services for the victims of such violence. Congress 

authorized both formula grant programs and competitive, discretionary grant programs. This 

flexibility enables states to formulate their own responses to violence while also supporting the 

nationwide development and dissemination of evidence-based practices that create solutions for 

different professionals in the criminal justice and civil legal systems. 

As a result of VA W A, we have witnessed a paradigm shift in how the issue of violence against 

women is addressed in the United States, and countless lives have been positively affected. 

YAW A has led to significant improvements in the criminal and civil justice systems, 

encouraging victims to file complaints, improving evidence collection, and increasing access to 

protection orders'" Victims now can reach out for help, call the police, find 24-hour emergency 

services, and take steps to leave abusive relationships. According to FBI Uniform Crime Report 

data, between 1993 and 2010, the number of individuals killed by an intimate partner declined 

30% for women and 66% for men.lO The annual incidence of intimate partner violence dropped 

by 67% during the same time period. " Fewer people are being victimized, and when they are, 

they feel safer reporting the abuse to the police. We have witnessed similar gains in the areas of 

sexual assault with the percentage of victims of rape and sexual assault who said they reported 

the assault to the police increasing from 28.8% in 1993 to 50% in 201012 

By reducing crimes and the subsequent costs to the criminal justice and health care systems, 

YAW A has realized cost savings. A 2002 study found that YAW A saved an estimated $12.6 

billion in net averted social costs in its first six years alone. 13 A recent study showed that the 

state of Kentucky averted $85 million in costs by reducing violence and improving victims' 

quality oflife through protection orders 14 Even small investments in V AWA have been shown 

to make a difference on the ground15 

Aldarondo, E .. & Castro-FernandeL. M. (lOll). Risk and protective factors for domestic violence perpetration. In J. 

W. White. M. P. Koss, & A. E. Kazdill (Eds.), ['iolence against 1/'Olllen and children: Mapping the terrain. Volume 

I (pp. 221-2-12). Washington. DC: American Psychological Association. 

9 Roe. K. J. (10M). The ['iolenee Against WOlllen Act and its impact on sexual violence public policy: Looking back 

and /ookingfiml'ard. Retrievcd from http://www.vawnct.org!Assoe]iles_VAWnet/VAWA-SVPubPol.pdf 

1(, Federal Bureau of Investigation. Unifonn Crime Report (UCR) Supplementary Homicide Reports (SHR). 

II Tnlll13n. J. L. (lOll). Crimina/l'ictilnlzation, 2010. Bureau of Justice Statistics Bulletil1 (No. NCJRS 135508) 

Washington, DC: U.S. Department of Justice. Bureau of Justice Statistics. 

Bastian, L. (1995). Crilllil1a/I'ietimization 1993. Bureau ojJustiee Statistics Bulletin (No. NCJRS 151658) 

Washington, DC: U.S. Department of Justice. Bureau of Justice Statistics. 

"Tillman, lOll. 

Bastian, 1995. 

"Clark, K. A, Biddle. A" & Martin. S. (2002). A cost-benefit anahsis of the Violence Against Women Act of 199~. 

Violence Against Women, 8(~). ~17--l28. 

14Logan, T.. Walker, R., Hoyt, W., & Faragher, T. (2009). The Kelltucl~v civil protective order study: .'1 rural and 

4 
12 

VA W A's most profound outcome may be breaking the cycle of violence by reaching children 

exposed to violence and intervening early when they have experienced assault or abuse. Without 

intervention, they are more likely to assault other children, join a gang, commit acts of violent 

delinquency, enter the juvenile justice system, develop psychiatric disorders, fail at school, be 

victimized by crime, and commit violent crimes as adults.'" Researchers have found that 

"recent exposure to violence at home was one of the most significant predictors of a teen's 

use of subsequent violence at school or in the community.,,17 Childhood abuse and neglect 

increase the odds of arrest as ajuvenile by 59%, arrest as an adult by 28%, and arrest for a 

violent crime by 30%.18 One study found that, when exposed to abuse as children, men are 

almost four times more likely to perpetrate domestic violence as adults, and women are 3.5 times 

more likely to be victimized.'" V A W A programs are critically important to break this 

intergenerational cycle of violence and end sexual and domestic violence for good. 

VA W A Grant Programs Fulfill the Congressional Vision for VA W A 

A key component of OVW' s mission is the administration of VA W A grant programs that 

support the efforts of state, local, and tribal communities across the country and in our territories 

to create innovative and necessary programs, policies, and practices that serve victims and hold 

perpetrators accountable. With VA W A funding, communities are forging effective partnerships 

urhan multiple pCrf,pective study (?(protective order violation consequences, rCf,ponses. and costs (No. NCJRS 

228350). Washinb'loll DC: U.S. Department of Justice. 

1< Boba. R.. & Lilley. D. (2008). Violence Against Women Act (VAWA) funding: A nationwide assessment of 

clIects on rape and assaull (No. NCJRS 2257~8). holence ,'lgai/1sl Women. 15(2). 168-185. 

'''Nelson. H. D., Nygren, P .. Mcinerney, Y .. & Klein, J. (20()~). Screening women and elderly adulls for family and 

intimate partneryiolence: a reyiew of the evidence for the U.S. Preventive Services Task Force. Anna!s of Intern a! 

Medicine, 140(5),387-96. 

Dube, Felitti, Dong, Giles & Anda. 2003. 

Margolin, G., & Gordis, E. (2004). Children's exposure to dolcncc in the ramify and community. {urreni 

Directions in PSJ'chological ,)ciencc. 13. 152-155. 

Widom, C. S, Czaja. S. J., & Dutton. M. A. (200S). Childhood victimizntion and lifctime rcvictimization. (,hild 

,~buse & Neglect. 32(8). 785-796. 

Kelley. B .. Thornberry. L & Smith. C. (1997). In the \rake of childhood maltreatment. JUI'enile Justice Bulletin 

(No. NCJRS 165257). Washington, DC: U.S. Department of Justice. Office of Juvenile Justice and Delinquency 

Prevention. 

DOll:l,igCr. S, (1996). the real war on crime: Fhe reporl o/1he A'alional Crimina/Justice Commission. Nc\v York. 

New York: HarperCollins Publishers, Inc. 

Widom, C. (1989). Does violence beget violence'! A critical e"amination of the literature. Psychological Bulietin, 

/06(1).3-28. 

Rose\vater. A. (2003). Promoting prevention, targeting teens: An emerging agenda to prevent domestic violence 

(No. NCJRS 2(6959). San Francisco: Family Violence Prevention Fund. pp. 21. 

Hagedon, J.. & Moore. J. (20t)]. March). Female gangs: A(oclis on research. Juvenile Juslice Bulletin (No. NCJRS 

186159). Washington, DC: U.S. Department of Justice. Office of Juvenile Justice and Delinquency Prevention. 

Hill, K. G .. Lui. C .. & Hawkins, J. D. (20tH. December). ~'arll' precursors (~(gang membership: A "IUd}' o(Seallle 

vouth. Juvenile Justice Bulletin (No. NCJRS 190106). Washington. DC: U.S. Deparllnent of Justice, Office of 

Ju\'cni1c Justice and Dc1inqucncy Prevention. 

I' Rosewater, 2003. 

18Widom, C .. & Maxfield. M. G. (2001. February). An update on the 'cycle 011'iolence '. NationalInstitute ojJustice 

Research il1 Ilrier Retrieved rmm hllps://www.nejrs.gov/pdrriles1/nij/18489-l.pdr 

19W1ritfield. C. L .. Anda. R. F .. Dube, S. R., & Felitti. V. J. (2003). Violent childhood experiences and the risk of 

intimate partncfviolcncc in adults. Journal afInterpersonal Violence. 18(2), 166-IR5. 

5 
13 

among federal, state, local, territorial, and tribal governments, and between the civil and criminal 

justice systems and victim advocates. For example, in the six-mofllh reporting period from July 

to December 2010 alone, OVW discretionary program grantees reported: 

• Over 126,600 female and male victims were served;20 

Over 258,100 services were provided to victims;21 

• Grantees conducted 6,935 training events and trained 167,043 people; 

• 280,075 protection orders were granted in jurisdictions that receive funding from OVW's 

Grants to Encourage Arrest Policies and Enforcement of Protection Orders Program 

(Arrest Program); and 

More than 2,500 arrests were made for violations of protection orders. 

Moreover, sub-grantees receiving funding awarded by States through OVW's STOP Violence 

Against Women Formula Grant Program (STOP Program) reported, in calendar year 2009 

• More than 476,200 female and male victims were served; 

• Over 921,200 services were provided to victims;22 

• Subgrantees conducted 13,193 training events and trained 254,860 people; and 

• More than 3,200 individuals were arrested for violations of protection orders. 

These grant funded activities have an impact that goes well beyond the number of victims 

served, professionals trained, or arrests made. By requiring and supporting grantees' 

participation in coordinated community responses to domestic violence, dating violence, sexual 

assault, and stalking, OVW also ensures that these programs can serve as models for other 

agencies in their jurisdictions. This not only improves the quality of victim services and the 

criminal and civil justice response, it often changes the attitudes of the community as a whole. 

Effective Grant Administration Must Be a Priority 

OVW takes very seriously its grant-making responsibilities and is dedicated to managing its 

grant programs effectively and with transparency. As we continue to move forward as a grant 

making office, we strive to incorporate guidance we receive from various oversight entities such 

as the Office of the Inspector General (OIG) and the Government Accountability Office (GAO). 

We also recognize the inherent challenges that we face in administering millions of precious 

taxpayer dollars. It is imperative that our grants administration activities inspire public 

confidence in our ability to carry out our mission. In my tenure with the Office, I have instituted 

changes to our policies and practices which reflect my commitment to implementing strong 

financial management of grants. 

" This does not include 2,523 families who were fully and partially served by Safe Haven's Program grantees, ~.672 

children and 59 dependents who were fully and partially served by Transitional Housing Program grantees. and 121 

families \vho \vere fully and partially served by Tribal Govenunent Program grantees. 

~l Because victims \vere reported only once in each categOI), of seIvice proyided. this munber represents the 

minimum Humber of times services \vcrc provided to victims by discretional)' grantees from July-December 2010. 

~2 Because victims ·were reported only once in each categOI), of service provided, this lllunber represents the 

minimum number of times services ,,",ere provided to victims by STOP subgrantees in 2009. 

6 
14 

Grant Administration 

One major example of this commitment is the creation of an OVW Grants Financial 

Management Division (GFMD) Although OVW had been in the planning phases of instituting 

this division for a number of years, it only came to fruition in time for the processing of our FY 

2010 grants. The major services provided by OVW's GFMD include (1) pre- and post-award 

financial grants administration; (2) technical assistance on financial issues and grants 

administration to OVW recipients, including via a toll-free customer service line; and (3) 

financial grants management training to OVW grantees and program statY The GFMD's 

knowledge of OVW programs and grantees and familiarity with the challenges faced in the 

administration ofOVW programs has also enabled OVW to more closely scrutinize budgets and 

identify other issues hefore they become problems, often before awards are even made. The 

implementation of the GFMD also represents an area of our stewardship of scarce federal 

dollars. Before we established our GFMD, we conducted a cost analysis of assuming grants 

financial management functions. We concluded we could do the work less expensively and 

more effectively, using the on-site expertise to provide closer oversight and more accountability 

for OVW grantees. 

This division is a crucial part of our response to grants challenges which the OIG has highlighted 

in the past. Unlike the State and local governments and agencies that receive a large portion of 

the department's grant dollars, many OVW grantees are small non-governmental community and 

faith-based organizations, often in rural communities. While these grantees share our 

commitment to ending violence against women, they are often first-time federal grant recipients 

without sophisticated financial systems to manage their awards. Having our own grants financial 

management division, allows us to focus on the unique needs of our grantees. For example, 

some grantees are unfamiliar with the federal grant requirements and may unknowingly violate 

federal administrative and cost principles. GFMD has identified some of the issues that grantees 

are facing and provides one-on-one guidance to ensure they have a better understanding of and 

are aware of the applicable rules and regulations. Another benefit of the GFMD has been its role 

in improving our grant close-out process. In FY 2010, OVW deobligated $8,977,137 in grant 

funds, which were then incorporated into our FY 2011 program initiatives. Another step we 

have taken to assist our grantees in proper financial management is to provide annual trainings 

by both the GFMD and the OIG through our grantee orientations. These trainings are open to all 

discretionary grantees and required for all new grantees. 

This fiscal year, the GFMD will be offering a number of topic-specific audio, in-person, and 

web-based trainings for OVW grantees. OVW proactively offers a range of trainings throughout 

the year to support grantees and prevent grant management mistakes before they are made. For 

example, OIG audits ofOVW grantees have revealed that poor timekeeping and insufficient 

records are common problems. The GFMD is now providing specific training on this issue and 

working with grantees to improve their practices. In response to a recommendation from the 

OIG, OVW added a section to its program solicitations that requires applicants to respond to a 

number of questions regarding their financial accounting practices. OVW uses this information 

to assess the financial capability of the applicant organizations and to identify those 

organizations that will require additional training and technical assistance prior to making an 

award. Based on the responses provided to these questions and feedback from the field and 

7 
15 

program staff, the GFMD identifies specific subj ect areas or topics requiring additional 

claritication or training and provides teleconferences to grantees to address their needs. 

We understand that funding decisions impact communities across the country, and therefore 

these decisions must be made in a fair and transparent manner. A 2010 OIG audit highlighted 

the need to improve the internal controls of the OVW peer review process. I immediately asked 

staff to develop recommendations for correcting those issues identified. Recommendations were 

developed and adopted within short order. To be specitic, OVW now requires that all peer 

reviewers submit their conflict of interest forms before receiving any scoring forms. While this 

might seem like a small solution, it works. Another issue in the same audit revolved around a 

handful of instances of inaccurate scoring. While it only affected a few applicants, when 

communities are competing for limited funds, every miscalculation impacts someone. Therefore 

we have added a requirement that scores be recalculated and certified when scoring is not 

automated. 

Monitoring 

Another inherent challenge in administering grant programs is ensuring the etl'ective monitoring 

of grant awards for both financial and programmatic compliance and to avoid fraud, waste and 

abuse. In order to strengthen our monitoring policies and procedures, we developed a new OVW 

Monitoring Manual for Grants Program Specialists. Program statl' have all been trained on the 

procedures addressed in the manual. Additionally, we have developed a grants management risk 

assessment tool. The OVW Grant Assessment Tool (GAT) is an automated system through 

which statl' can carefully and impartially assess grant activities. Using this tool, OVW program 

specialists identify and set monitoring priorities for all grantees based on a standard set of 

criteria. The GAT also enables OVW to track risk assessments completed by program specialists 

and better coordinate on-site visits to grantees receiving multiple program awards. All OVW 

program specialists are required to use this tool to perform initial risk assessments for all new 

grants and supplemental grant awards. The GAT has made the process of identifying 

compliance issues with current grantees faster and more etlicient by enabling program specialists 

to have access to a succinct and comprehensive overview of a grantee's performance on each of 

its current OVW grant awards. This allows for improved intra-otlice coordination of the review 

of grant proposals across all 2123 grant programs administered by OVW. 

The many steps OVW has taken to improve grant management have reduced the likelihood that 

grantees will violate grant requirements either inadvertently or intentionally. Many violations of 

grant requirements are minor, accidental, and easily cured. Most OIG audit findings regarding 

OVW grants are not about waste, fraud, or abuse, but rather concern inadequate accounting and 

insutlicient documentation. Once a finding is identified, the OlG issues a recommendation. 

These recommendations are remedied when grantees provide appropriate documentation and 

work with OVW and the OIG to improve their accounting practices. The OIG closes the 

recommendation when it verifies that the problem has been solved or sutlicient documentation 

demonstrates that no problem existed. Findings that may initially seem significant are often fully 

~, OVW administers .3 fonnula grant and 1 X. discretional)' grant programs. Ho\\'c\,cr, because 4 youth programs 

were consolidated in the 2012 Congressional Budget Ov\V will be administering 15 discretionary progmms in the 

future. 

8 
16 

addressed or dollar amounts greatly reduced once the appropriate documents are provided. In 

the overwhelming majority of cases, grantees have spent their funds appropriately and benetlt 

from the lessons learned in the audit process. However, if OVW believes that a grantee has 

intentionally misspent funds, they are promptly reported to the OIG and may be prosecuted. 

Program Consolidation 

In addition to assessing our grants management processes, we regularly review the overall 

administration of our grant programs. Recently this internal review identitled the advisability of 

requesting statutory consolidation of some of our grant programs. VA W A 2005 authorized four 

new programs that focus on children and youth and expand OVW's programming into the area 

of prevention. These programs are: Engaging Men and Youth in Preventing Domestic Violence, 

Dating Violence, Sexual Assault, and Stalking (Engaging Men and Youth); Grants to Assist 

Children and Youth Exposed to Violence (Children Exposed to Violence); Services to Advocate 

for and Respond to Youth (Youth Services; and Grants to Combat Domestic Violence, Dating 

Violence, Sexual Assault, and Stalking in Middle and High Schools (STEP). These programs 

individually have limited focus Engaging Men and Youth funds prevention activities; Children 

Exposed to Violence focuses on children who come from families where there is domestic 

violence, dating violence, sexual assault, and stalking; Youth Services provides services for 

youth victims of these crimes; the STEP Program focuses on developing responses in the school 

environment. All of these activities are critically important to developing a comprehensive 

response to youth victims and to breaking an intergenerational cycle of violence. If a community 

wanted to pursue several or all of these activities, however, it would have to apply for and 

receive multiple grant awards. None of these programs had ever received an appropriation for 

more than $3.5 million, so the reach of each program was extremely limited. 

To facilitate our ability to fund more comprehensive youth and prevention projects, OVW 

proposed to consolidate these four small programs into one larger program as part of the FY 

2012 and FY 2013 President's budget request. The consolidation was included in the FY 2012 

Congressional Budget with an appropriation of $10 million. The combined program will be able 

to fund more comprehensive projects in a greater number of communities than OVW is now able 

to do. Under the consolidated program, OVW will be able to support communities that wish to 

build comprehensive projects that provide services, promote prevention, and develop other 

responses that address both exposure and direct victimization. 

Department-wide Coordination 

In addition to improving our intra-office coordination, OVW has been actively involved in 

efforts within DO] to improve coordination among the three major DO] grant making 

components - the Office of Justice Programs, the Office of Community Oriented Policing 

Services, and OVW. In January, 2010, the Department of Justice's three grant components 

began bi-weekly meetings to address the issues raised by the Office of the Inspector General in 

the 2009 "Top Management and Performance Challenges in the Department" report and to 

develop Department-wide policies and procedures to improve grant processes. As a result of 

these meetings, we now have a Department-wide process for dealing with High Risk Grantees. 

The group, which is known as the Grants Challenges Working Group, developed and launched 

9 
17 

an on-line financial training for grantees of the three components. The Grants Challenges 

Working Group continues to meet monthly in order to address and prioritize issues raised in OTG 

and GAO audits, as well as common areas of concern. In addition, there is now a quarterly 

meeting between the components and the OIG. OVW has found input from the Grants 

Challenges Working Group and from the OIG, GAO, and others helpful in our efforts to make 

significant, positive changes to our grant processes where needed. We welcome the continued 

suggestions and recommendations from these and other organizations. 

Coordination within DOJ and among federal agencies also helps reduce duplicative uses of 

funding. Due to limited grant resources, DOJ encourages agencies to use multiple grant funding 

streams in a complementary manner in order to implement a comprehensive local approach to 

reducing crime. Using funding from multiple grant programs may be necessary to fully 

implement law enforcement and victim service projects in light oflimited local and federal 

resources. In fact, OVW encourages applicants to maximize the impact of OVW grant funding 

by applying for other federal grants, leveraging state dollars and by contributing to the costs of 

their projects through in-kind contributions. Nonprofit, nongovernmental organizations often 

function by combining a number of small grants from various funding streams to provide victims 

with services to improve safety for themselves and their children. For instance, at a domestic 

violence shelter, a V A W A Legal Assistance for Victims grant may fund an attorney to help 

victims get protective orders, , while a Victims of Crime Act grant funds a crisis counselor, an 

HHS Family Violence Prevention and Services Act grant funds a children's specialist who helps 

children in the shelter recover from the violence they have witnessed, a HUD Emergency 

Solutions Grant keeps the lights and heat on at the shelter, and a V AW A Transitional Housing 

grant funds short-tenn rental assistance for victims who are leaving the shelter and rebuilding 

their lives. OVW considers such a use of various federal funding streams an effective means of 

developing comprehensive victim services that can help victims escape their batterers 

permanently. In contrast, if a grantee were to use multiple funding streams to fund the same fulltime victim counselor for the same 40 hours a week, this would be impermissible - and could 

constitute a fraudulent use offunds. To minimize the risk that grantees will engage in such 

"double-dipping," in FY 2009, OVW developed an award special condition specifically 

addressing the issue of duplicative funding in conjunction with the administration of Recovery 

Act Transitional Housing Assistance Program awards. OVW plans to address the issue of 

possible duplication offunds in all FY 2012 Grant Solicitations and plans to use this special 

condition on all OVW program awards beginning in FY 2012. 

Cost Controls 

Training conferences and meetings playa vital role in providing information, education, 

coordination, and innovative strategies and approaches to criminal and civil justice professionals 

and victim service agencies. OVW is fully cognizant of the importance of its fiduciary 

responsibility and that of its grantees to ensure conference spending is accomplished within 

proper guidelines and with restraint OVW has provided explicit guidance to our award 

recipients about reducing conference costs, including that no OVW funding can be used to 

purchase food or beverages except under limited extenuating circumstances. Additionally, given 

the nature ofa cooperative agreement and the fact that all ofOVW's critical training and 

technical assistance awards are issued through cooperative agreements, all OVW cooperative 

10 
18 

agreement recipients must receive prior approval from OVW for any conference supported with 

OVW funds. Travel costs must be minimized by finding the most cost effective locations and 

venues. OVW is also working with grantees to find alternative ways to provide training, such as 

webinars, teleconferences, and interactive online training modules. These types of trainings are 

not accessible to all grantees (such as rural grantees without broadband internet access) and may 

not provide the type oflearning necessary to accomplish the training goal (such as building 

partnerships between police, courts, and service providers), so OVW works with grantees to 

determine sensible ways of reaching the target audience for a minimal cost. 

Measuring Effectiveness 

To aid our understanding of the effectiveness of YAW A grants, OVW has undertaken a 

significant effort to improve how we measure the work of V A W A grantees by developing and 

revising computerized progress report forms for grantees to collect relevant information. These 

progress report forms provide OVW with extraordinarily comprehensive and consistent data 

regarding grantee activities, including both process and outcome measures. While we use these 

progress report forms as a tool for monitoring, it is my goal to put to greater use this vast data 

collection. For example, our Transitional Housing grantees report the destination of their clients 

upon exit from program housing - and these reports tell that a substantial majority of these 

victims leave for permanent housing of their choice. Not only does this measure show true 

success for the grant program as a whole, but we should be using it to identify specific grantees 

with the most promising practices. The data also can reveal gaps in our services or barriers in our 

statute, which should guide our policy- and grant-making. Academic and governmental research 

also contribute greatly to our understanding ofVAW A's efficacy. Many of these studies are 

mentioned in the following sections illustrating YAW A's achievements. 

VA W A Programs Yield Successful Prosecutions 

V A W A funds have supported significant improvements in the criminal and civil justice systems. 

One study finds that VA W A has "significantly strengthened victims' involvement with criminal 

justice authorities such as prosecutors and court otlicers,,24 while other researchers have 

concluded that the "STOP program has been critical to law enforcement and prosecution 

training, and the development of specialized units,,25 

Specialized Responses for Law Enforcement and Prosecution 

Law enforcement agencies are charged with identifying and arresting perpetrators of sexual 

assault, domestic violence, dating violence, and stalking. V A W A anticipates that law 

enforcement professionals will act to safeguard victims. The manner in which officers and 

agencies carry out these duties profoundly influences their success or failure in responding to 

violence against women. Specialized law enforcement units with dedicated staff that deal 

'"Cho. H .. & Wilke, D. J. (2005). How has the Violence Against Women Act illfeeted the response of the criminal 

justice system to domestic violence'! Journal afSociology and ,')'ociaJ Welfare. 22, 125-139. 

"Uekert. B., Miller. N., Dupree, C., Spence. 0 .. & Archer, C. (2001). '1ne emlualion oflhe STOP flo/ence 'Igainsl 

Women Grant Program. Lmt· enforcement and prosecution components (publication No. NCJRS 189163). 

Washington. DC: U.S. Department of Justice. 

II 
19 

exclusively with sexual assauit, domestic violence, dating violence, or stalking often produce 

better outcomes for victims, police, and prosecution. From July to December 20 I 0, 89 Arrest 

Program and Rural Domestic Violence, Dating Violence, Sexual Assault and Stalking Assistance 

Program (Rural Program) grantees reported that they developed or supported a specialized law 

enforcement unit. 

Specialized domestic violence police units collect evidence in a much higher percentage of cases 

than traditional patrol units26 The evidence collected by specialized units is more likely to be 

useful for prosecution,27 leading to higher rates of prosecution, conviction, and sentencing.'" For 

example, Shelby County, Tennessee used its Arrest program funding to add two new officers to 

serve protection orders. This led to a 13% increase in the number of protection orders served 

over the previous reporting period. The City of Cleveland, Ohio used its Arrest program funding 

to create its first ever domestic violence warrant unit, enabling the police department to serve 

outstanding domestic violence warrants that othefVIiise might not have been served due to 

resource constraints. 

Austin, Texas used Arrest Program funds to deliver training on dual arrests and department 

procedures relating to domestic violence: 

A sheriffs office detective, with support from Domestic Violence Unit detectives, 

held seven domestic violence trainings for 109 sheritl's officers and civilian 

personnel. There were no dual arrests by sheriffs officers during this report 

period as a result of the impact of these trainings. Some sample comments from 

the evaluations 'Very eye-opening I was blaming the victim before this.' 'This 

class gave me a new perspective on domestic violence calls' 'Instructors have 

good ideas on how to determine the predominant aggressor.' 'I have handled 

incidents of domestic violence involving staff and now see clues/symptoms I 

missed.' Austin Police Department (APD) Domestic Violence Unit detectives 

trained over 700 APD officers on domestic violence and Family Violence 

Protection Team procedures including all supervisors and district representatives 

and a cadet class of 60. 

Jurisdictions with specialized domestic violence prosecution programs generally have the highest 

rates of successful prosecution29 From July to December 2010, 81 Arrest Program and Rural 

Program grantees reported that they developed or supported a specialized prosecution unit. In 

two years, a specialized domestic violence prosecution unit in Chicago convicted 71 % of 

defendants compared to 50% of domestic violence defendants convicted by the rest of the Cook 

co Frid"y, Po, Lord, Y. B., Ex,ml M. L., & Hartman. J. L. (2006). Jivall1ating the impactq{a speCialized dOlllestic 

Fiolence police lInlt (No. NCJRS 215916). Washington, DC: U.S. Department of Justice. 

2' Townsend. M .. Hunt, D .. Klick. S .. & Baxter, C. (2006). Law en/(wcemenl re.~ponse 10 domestic violence calls/or 

(No. NCJRS 215915). Washington. DC: U.S. Department of Justice. 

Holleran, D .. Beiehner, Do, & Spohn, C. (2010). Examining charging agreement between police and prosecutors in 

rape c"ses. Crime & Delinquencv, 56(3). 385-~13. 

Jolirl A.. Feyerherm. W .. Fountain, R., & Friedm31l S. (1998). Beyond arrest: The Portland, Oregon domestic 

,'iolence experiment, final report (No. NCJRS 1799(8). Washington, DC: U.S. Department of Justice. 

"Smiili B., Davis, R.. Nickles, L., & Davies, H. (2001). ,~n evaluation of efforts to implement no-drop policies: 

TIFO central values ill conflict. .fillal report (No. NCJRS 137772). Washington, DC: U.S. Department of Justice. 

12 
20 

County officeJO Four years after Milwaukee implemented a specialized prosecution unit, felony 

convictions had increased five-fold. 31 Signiticantly, VAW A Grants to Encourage Arrest 

Program-funded prosecutors' offices had a 76% conviction rate for sexual assault cases in the 

second half of 2010 

YAW A funding has supported multi-agency, multi-disciplinary teams to investigate and 

prosecute sexual assault and abuse cases in the State of Vermont for many years, and the State 

has now committed to providing all citizens with access to these special investigation units. 

The most common model for a coordinated community response to sexual violence is a Sexual 

Assault Response Team, or SART. A SART is a community-based team that coordinates the 

responses of sexual assault victim advocates, Sexual Assault Nurse Examiners (SANEs), law 

enforcement, prosecutors, and others who may encounter a victim immediately after an assault. 

Upon the request of a sexual assault victim, the SANE (or other forensic examiner) conducts a 

forensic exam and collects evidence in a rape kit while providing the victim with medical care. 

A victim advocate also provides emotional and practical support before and after the exam, 

including throughout the law enforcement and criminal justice process. 

SART and SANE programs have been found to improve the quality of forensic evidence, 

improve law enforcement's ability to collect information and to file charges, and increase the 

likelihood of successful prosecution32 An OVW-funded project in West Virginia has found 

that changes following the establishment of a SART include greater communication and 

colI aboration, on-call programs at local hospitals, and intensive training for service providers, 

nurses, law enforcement, and other professionals. In one county where law enforcement 

officers previously refused to work with the rape crisis center advocates, the otlicers now call 

an advocate when a victim is at the hospital and permit the advocate to be present during the 

victim interview. 

Courts: The Importance of Training and a Dedicated Focus 

Domestic violence courts process cases more efticiently, increase otTender compliance, impose 

enhanced penalties, and achieve higher rates of conviction33 This helps stem the tide of 

30 Hartley. C. c.. & Frolunalln, L. (2003). Cook County Target Abuser Call (TAC): An evaluation ofa specialized 

dome.'o'iic violence court, rel'ised execUlil'e summary (No. NCJRS 20294-l). Washington, DC: U.S. Department or 

Justice. 

31 Harrell, A., Schaffer, M., DeStefano. c.. & Castro. 1. (2006). The evaluation ojjlii1raukee 's judicial oversight 

demonstration, .final research report (No. NCJRS 215349). Washington, DC: U.S. Department or Justice. 

12 Campbell, R.. Patterson, D., & Lichty, L. F. (2005). TI,e effectiveness of Sexual Assault Nurse Examiner (SANE) 

programs: A rcvic,,, of psychological, medical, legal, and community outcomes. Trauma, r'"io/ence, & .'lhu5;e, 6(4), 

313-329. 

Bulman. P. (2009). Increasing sexual assault prosecution rates. National Institute of Justice Journal. (2M), 1~-17. 

Campbell. R.. Bybee, D., Ford, J.. & Patlcrson, D. (2008). Svslems change anal}"'is (~rSA;V;'; programs: idenlUj;ing 

the mediating mechanisms oferilllinal justice system impact (No. NCJRS 22M97). Washington, DC: U.S. 

Department or Justice. 

Campbell. J. (2005). Assessing dangerousness in domestic violence cases: History, challenges, and opportunities. 

Criminology & Public Poli~v, 4(~). 653-672. 

" Davis, R., Smith, B. E.. & Rabbit, C. (20t)]). Increasing convictions in domestic violence cases: A ricld test in 

Milwaukee. Justice System Journal, 22(1), 61-72. 

Harrell, Schaffer. DeStefano & Castro, 2006. 

13 
21 

violence: victims are more inclined to follow through and testify if hearings occur in close 

proximity to the offense. The longer the lapse in time, the greater the likelihood an otTender may 

persuade the victim to drop the charges, or coerce the victim into declining to testify. National 

studies have shown that courts need to take a more holistic approach to domestic violence case 

management in order to fully address the complexities of domestic violence cases and the needs 

and interests of the victims who seek remedies through the courts.'" In Wisconsin, the 

Milwaukee County District Attorney's Office recently reported to OVW that: 

[T]he new domestic violence case expedition or domestic violence fast-tracking is still in 

place in the three Milwaukee Domestic Violence Circuit Courts. On average, cases 

proceed to disposition within 67 days of their initial circuit court appearance. The [Arrest 

Program] funding made this possible and continues to enable our office to comply with 

its mandate with competent and effective prosecutions system-wide ... Today, dozens of 

cases that would otherw'ise be dismissed in court due to the failure of the victim to appear 

as a result of undetected o±Tender intimidation, are cases where the offender is held 

totally accountable. 

OVW has funded highly interactive, e±Tective education programming to enhance judicial skills 

and challenge judges' attitudes and values about domestic and sexual violence, victims, and 

perpetrators. Ajudge from California who recently attended a training with the National Judicial 

Institute on Domestic Violence said that: 

1 became a much better judge - better at understanding the enormous impact my 

decisions have on the families who come into my courtroom, better at making victims of 

violence feel safe and secure in court, and better at helping these individuals achieve 

safety, dignity, and support in their own communities. These interactive trainings give 

judges the opportunity to explore various approaches to solving problems that arise in the 

courtroom setting, ways to help eradicate future violence, and ways to make reasoned 

decisions that may end up saving lives. 

VA W A Services Make All the Difference 

We know that the provision of services to victims and their families is the primary conduit for 

creating safety. Over the past several decades, victim service providers and communities have 

worked diligently to create responsive programs and services to meet the often complex needs of 

victims and their families. Victims who receive comprehensive advocacy and services are more 

likely to achieve their goals of safety, autonomy, healing, and economic security than women not 

receiving such support and services." 

Henning. K .. & Klesges. L. (1999). EI'aluatiol1 o(the Shelbv Countv Domestic l'iolel1ce Court.fil1al report. Shelby 

County, TN. 

Newmark, L.. Rempel, M .. Diffily. K .. & Kane. K. M. (200 J). Specialized jetol1Y domestic l'iolel1ce court: Lessons 

on implementation and impaCls/rOnl the Kings C()un(v experience (No. NCJRS 167237), Washington, DC: U.S. 

Department of Justice. 

34 Keilitz. S. (2004) . . Specialization of domestic \'Iolence case management in the courts: A national survey. 

Washington. DC: U.S. Department of Justice. 

3' Allen, N. E .. Bybee. D. I.. & Sulliyatl C. M. (200~). Battered women's multitude of needs: Evidence supporting 

the need for comprehensive advocacy. Violence .'lgaiIl5;t Women, /0(9), 1015-1035, 

14 
22 

Victims who are seeking services trequently have children with them and request assistance to 

help their children heal from the trauma they have witnessed. This is why the Attorney 

General's Defending Childhood initiative is so important This coordinated effort with our 

public and private partners will leverage resources throughout the government. OVW is proud to 

be an active partner. We have provided technical expertise on domestic violence, dating 

violence, sexual assault and stalking and contributed over $4 million in grant funding to date. 

Collaborative efforts between domestic violence and sexual assault organizations and 

governmental agencies serving children, such as child welfare systems, maximize community 

resources and ensure that children and youth in need are identifIed and referred for assistance. 

V A W A funds support essential coordination between law enforcement and victim service 

providers. A grant-funded law enforcement officer from Dauphin County, Pennsylvania 

articulates how the addition of a victim advocate enables him to concentrate on domestic 

violence cases. The otlicer explains: 

I am able to spend more one-on-one time with the victims and am able to ensure all 

aspects of the case have been met and proper charges have been filed. Many times, after 

speaking with a victim, it is apparent the initial charges are inadequate and more serious 

charges related to the case are then brought. I am very fortunate that this grant has 

allowed me to work side by side with a victim advocate. The advocate is able to provide 

victim services, such as advocacy, support, referrals, crisis intervention, etc., which 

allows me the ability to obtain more detailed statements and collect evidence which 

might have been initially overlooked. Having a female victim advocate along also allows 

me to get follow-up photographs when our forensics unit is unavailable. This program 

has been so successful that another department has used it as a model to use in their 

domestic violence program. 

Understanding the Needs of Sexual Assault Victims 

Congress recognized the need for specialized services for rape victims during the 2005 

reauthorization of V A W A by creating the Sexual Assault Services Program (SASP), the only 

federal funding stream dedicated to providing services solely and specifically for sexual assault 

victims. Overall, the purpose of SASP is to provide intervention, advocacy, accompaniment, 

support services, and related assistance for adult, youth, and child victims of sexual assault, 

family and household members of victims, and those collaterally affected by sexual assault. In 

Fiscal Years (FYs) 2009, 2010 and 20 II, each state and territory received formula funds through 

SASP and these states and territories made subgrant awards to local programs to provide direct 

services to victims. OVW has also designed a Sexual Assault Demonstration Initiative (SADI) 

to address the challenges that multi-service agencies face in reaching both sexual violence 

victims within their communities. SADI Project sites are receiving customized guidance on 

developing and implementing models of service provision that prioritize the needs of sexual 

violence victims and provide resources they need to implement those models. The six 

demonstration sites are located in Sacaton, Arizona, Alpena, Michigan, Gering, Nebraska, New 

York, New York, Pittsboro, North Carolina, and Olympia, Washington. 

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23 

Over the last two years, OVW worked with the FBI, law enforcement, and victim advocates to 

update the definition of rape used for the FBI's nationwide data collection, ensuring that rape 

will be more accurately reported nationally. The change sends an important message to all 

victims that what happens to them matters, and to perpetrators that they will be held accountable. 

Requests from members of Congress helped ensure this important change within the FBI's 

Uniform Crime Report (UCR) Summary Reporting System (SRS). The UCR is the national 

"report card" on serious crime; what gets reported through the UCR is how we, collectively, 

view crime in this country. Police departments submit data on reported crimes and arrests to the 

UCR SRS. "Forcible rape" had been detlned by the UCR SRS as "the carnal knowledge of a 

female, forcibly and against her will." This definition, unchanged since 1927, was outdated and 

narrow, including only forcible male penile penetration of a female vagina. The new definition 

reads: "The penetration, no matter how slight, of the vagina or anus with any body part or object, 

or oral penetration by a sex organ of another person, without the consent of the victim." This 

definition includes any gender of victim or perpetrator. It also includes instances in which the 

victim is incapable of gi ving consent because of temporary or penn anent mental or physical 

incapacity (including due to the influence of drugs or alcohol) or because of age. The ability of 

the victim to give consent must be determined in accordance with state statute. Physical 

resistance is not required on the part of the victim to demonstrate lack of consent. The detinition 

more closely matches the definitions used in state criminal codes. The change will allow law 

enforcement and the general public to better grasp the true extent of rape and make more targeted 

allocations of resources to promote public safety. 

Legal Services Are Critical 

VA W A also recognizes that access to legal services enhances safety for victims and their 

dependent children. Often, legal services are essential for victims to obtain comprehensive 

protection orders that will provide for care and custody of children, financial support and 

housing. Without this crucial assistance, victims may not be able to overcome legal and 

economic obstacles to achieving safety for themselves and their children. There is also a body of 

research indicating that the increased availability oflegal services has significantly contributed to 

a decline in domestic violence in the United States 36 Obtaining a protection order has been 

shown in multiple studies to reduce future assault and improve quality oflife 37 Even when 

orders were violated, there was a significant reduction in subsequent abuseJ8 

Yictims of domestic violence, however, often need highly trained attorneys willing to take on 

lengthy and complex litigation beyond the protection order hearing. Resources for this purpose 

are woefully inadequate. Since 1998, OVW has administered the Legal Assistance for Victims 

Program (LAY), the primary YAW A-funded vehicle for delivering legal assistance to victims of 

sexual assault, domestic violence, dating violence, and stalking. LAY is one of OYW's most36 Dugall L. Nagin D. S .. & Rosenfeld, R. (1003), Do domestic violence services srIVe lives? (No. NCJRS 

1965~8). Hationa! Institute ojJuslice Journal. 250.20-25. 

Fanner, A. & TicrcnthalcT. J. (2002). Explaining the recent decline in domestic violence. COnlemporary 

Ecol1omicPolicy. 21(2).158-172. 

3' Holt, v., Kemic. M .. Wolf M .. & Rivard. F. (2003). Do protection orders affect the likelihood of future partner 

violence and injury? hnerican./ournal (~r Preven1i1'e k!edicine, 2-1(1), 16-21. 

Logan. Walker. Hoyt & Famgher. 2009. 

38 Logan. Walker. Hoyt & Faragher, 2009. 

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24 

requested grant programs. This program has consistently provided services to an average of 

35,424 victims during each six-month grantee reporting period39 

The County of Schuylkill, Pennsylvania reports 

The bench appears to respect the work of the project attorneys, and this has 

greatly improved the experiences victims have in court. Being able to 

videoconference judges for protection orders in after hours from the shelter has 

been a godsend. It has improved accessibility and because the project's paralegal 

has assisted the victim/survivor in completing the petition, they are well prepared 

before the judge is called to hear the case - a tremendous improvement for the 

judges over the prior process. If the courts are happier, some might say the victim 

(and the service provider) will be, too. 

VA W A Enhances the Capacity of Tribal Governments to Address Violence Against Native 

Women 

American Indian and Alaska Native women are battered, raped and stalked at higher rates than 

other groups of U.S. women and often suffer more severe injuries."o OVW engages in ongoing 

dialogue with tribal leaders and advocacy organizations to determine how to increase the 

effectiveness offunds supporting etforts to address violence against American Indian and Alaska 

Native women. During FYs 2010 and 201 I, OVW joined with DOl's two other major grantmaking components, the Office of Justice Programs and the Community Orienting Policing 

Services (COPS) Oftlce, to combine DOJ's tribal-specific grant programs - including OVW's 

Grants to Indian Tribal Governments and Tribal Sexual Assault Services Programs - into a 

single Coordinated Tribal Assistance Solicitation (CTAS). Through the FY 2011 CTAS process, 

39 This is bascd on data that rcncct LA V grantee activities from Januar\" 1,2009 through Decembcr 31. 2010. 

Victims \vere reported once for each category of service received in each reporting period. Hmvever. victims may 

have received multiple services in the same reporting period and the same scrvicc(s) in multiple reporting periods . 

. ", Black, Basile, Breiding, Smith, Walters. Menick. Chen & Stevens, 20 II. 

rjadell, P., & Thoennes, N. (2000). Full rcporton the prevalence, incidence. and consequences ofl!iolence against 

)romen (No. NCJRS 183781). Washington. DC: U.S. Department of Justice, pp. 22. 

Yuan, N. P .. Koss. M., Polacca, M., & GoldmaJL D. (2006). Risk factors for physical assauJt aJill rape among six 

Nathe American tribes. Journal (~r Interpersonal ho/enc(!, 21(12), 1566-1590. 

Wood, D. S .. & Magen R. H. (2009). Intimate partner violence against AU13baskan women residing in interior 

Alaska. Violence Against Women, 15(~), H7-507. 

Evans-Campbell. T.. Lindhorst. T., Huang, B .. & Walters. K. L. (2006). Interpersonal violence in the lives or urban 

American Indian and Alaska Native 'Vomen: Implications for health, mental health, and help-seeking. ~~mericaJ1 

Journal of Puh/ic Health, 96(8), 1416-IH2. 

~iadell. P., & Thoennes. N. (2006).l!"xtent, nature, and consequences a/rape victimization: Findings/rom the 

National r-'iolence Against Women Survey (No. NCJRS 2l03~6). Washington. D.C.: U.S. Department of Justice. 

Lum-Fircbaugh, E. M. (2006). Violence against American Indian women and the Serviees-Training-OfficersProsecutors Violence Against IndiaJl Women (STOP VAIW) program. Violence Against Women, 12(2), 125-136. 

Greenfield, L. A .. & Smith, S. K. (1999) . . Imericanlndwns and crime (No. NCJRS 173386). Washington, DC: U.S. 

Department of Justice, Bureau of Justice Statistics. 

Bohn, D. K. (2003). Lifetime physical and sexual abuse. substaJlCe abuse. depressiOlL and suicide attempts among 

Nathe American \vomcll. Issues in /\1enialllealth ,Vursing, 24(3), 333-352. 

Jones. L. (2007). The distinctive characteristics and needs of domestic violence victims in a Native American 

community. Journal (~fFarni~v Violence, 23(2),113-118. 

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25 

OVW awarded a total $36.6 million to over 61 tribal governments and their designees. Tribal 

leaders had informed the Department that a single application would signitlcantly improve their 

ability to apply for, and receive, the critical federal funding on which so many of their 

communities depend. This coordinated approach allows OVW and its sister grant-making 

components to consider the totality of a tribal community's overall public safety needs in making 

award deci si on s. 

A majority (56%) of the tribes receiving funds did not have domestic violence programs prior to 

the receipt ofVAW A funding. 4

! This funding has played a signitlcant role in increasing 

programs and services available to American Indian populations. These programs have both 

improved and increased the effectiveness of services provided by tribal court systems. 42 

Grantees from OVW's Grants to Tribal Domestic Violence and Sexual Assault Coalitions 

Program provide technical assistance to programs to help other professionals and organizations 

improve their response to American Indian and Alaska Native victims and to improve 

organizational infrastructure. The Southwest Indigenous Women's Coalition in Arizona reports: 

Tribes were so thankful for the opportunity to meet with someone - a resource - who 

could provide them assistance in developing their communities' response to domestic 

violence/sexual assault and to help them get connected to outside resources. 

Leveraging the Impact of VA W A Funding 

Over the past 16 years, we have learned that truly effective coordinated community responses 

must be informed by the experiences of survivors and must be broad enough to include a diverse 

group of community partners that affect the safety of survivors and the accountability of 

perpetrators. Communities now recognize the specialized needs of victims and the training 

required to effectively respond to these types of crimes. In addition to providing direct services 

such as crisis intervention, advocacy, counseling, legal support and representation, and shelter, 

communities across the country engage in a wide variety of educational and preventive services. 

Unlike other crimes, domestic and sexual violence are often glamorized in the media and 

minimized by our legal system. Training is the key element not only for improving the way 

professionals perform their jobs but also for changing deeply held beliefs and biases about 

domestic violence, dating violence, sexual assault and stalking. 

Years of experience have taught us the importance of quality training in combating domestic 

violence, dating violence, sexual assault and stalking. As a result, almost all OVW discretionary 

and formula grant programs support training of professionals to improve their response to these 

crimes. Understanding these issues is critical to an effective response to domestic and sexual 

violence and to preventing further harm and unintended negative consequences to victims. The 

City of Spartanburg, South Carolina reports that 

We have engaged the local faith community in our work through training programs 

offered by our minister liaison with the Domestic Violence Coordinating Council. We 

" Luna-Firebaugh, E. (2006). Violence Against American Indian Women and the Serviees-Tmining-OrrieersProsecutors T'/Olence Against indian Tromen (STOP T:411fj Program. T'iolence Against Women. 12, 125-136. 

"Luna-Firebaugh,2006. 

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26 

have offered scholarships for the past two years to our annual conference. This year we 

had ministers calling for scholarships even before the registration fonns went out. To 

date, we have trained 230 ministers. 

In addition, OVW funds technical assistance projects so that national experts can educate and 

disseminate evidence-based practices to advocates, clinicians, police, prosecutors, judges, health 

care practitioners, and many other professionals who are on the front lines. In these times of 

limited resources, OVW has made it a priority to expand the reach ofVAW A grant programs by 

sharing the best practices and knowledge that our grantees have developed. 

For example, OVW has worked with national organizations with expertise in training criminal 

justice professionals to create curricula for law enforcement, prosecutors, and judges focusing on 

elder abuse, neglect, and exploitation. VAWA's Abuse in Later Life Program funding has 

enabled the National Clearinghouse on Abuse in Later Life (NCALL) and the Federal Law 

Enforcement Training Center (FLETC) to help local law enforcement develop multidisciplinary 

teams that both respond to elder abuse and train other law enforcement officers. The curriculum 

can be customized for each locality. NCALL also partnered with the National District 

Attorneys' Association, the National Council of Juvenile and Family Court Judges and Futures 

Without Violence to educate prosecutors and judges. Victim service providers and adult 

protective service workers received assistance recognizing the unique needs of older victims and 

providing victim centered services. This curricula and technical assistance free OVW grantees 

from the costly, time consuming and redundant work of creating separate curricula for each 

community and enables them to focus instead on addressing elder abuse, neglect and exploitation 

in their communities. Many trainings and train-the-trainer development programs are open to 

non-grantees, spreading the knowledge across the country. 

Looking Ahead: Responding to Economic Challenges, Taking the Next Steps to End 

Violence 

The past few years have brought challenges to both victims and the programs that serve them. 

Financial stress does not generally cause a nonnal relationship - even an unhealthy one - to 

become abusive. However, it often exacerbates abuse when both victims and perpetrators have 

fewer options and resources. Job loss, foreclosure and other stressors may increase violence or 

trap a victim in a dangerous relationship. Couples who reported extensive financial strain had a 

rate of violence more than three times that of couples with low levels of financial strain." 

Women whose male partners experienced two or more periods of unemployment were almost 

three times as likely to be victims of intimate partner violence as were women whose partners 

were in stable jobs. 44 More than half of domestic violence shelters report that abuse is more 

violent now than before the economic downturn45 

In the best of economic times, a victim worries about finding a job and housing and providing for 

her children; these problems intensify during a recession. During an economic downturn, a 

.. tl. Bensoa M. L., & Fox, G. L. (200-1-), When vIOlence hits home: Holt' economics and neighborhood playa role, 

Research in hrief(No. NCJRS 205(04). Washington, DC: U.S. Department of Justice. 

'" Benson & Fox, 20M. 

-15 Mary Kay Ash Charitable Foundation. (20 10) . . \fury K(~v's truth ahout ahuse. 

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27 

victim of domestic violence faces additional obstacles to leaving her abuser. Victims may not 

have tlnancial reserves, the ability to easily tlnd a job, friends and family who can put them up, 

access to credit, or other resources that are available when the economy is stronger. Without 

such resources, emergency domestic violence shelters and other services become the only place 

victims can turn. In fact the economic downturn has had a signiilcant eiTect on demand for 

domestic violence and sexual assault services. 

Onjust one day in 2011, over 67,399 adults and children found safety through domestic violence 

services. Yet on that same day, 10,581 requests for services went unmet because of a lack of 

resources or staffing - an alarming II % increase from 201046 In 2010, 1,441 (82%) domestic 

violence programs reported a rise in demand for services, while 1,351 (77%) of programs 

reported a decrease in funding. 47 The National Domestic Violence Hotline and National Dating 

Abuse Helpline received 288,227 calls in 2011, but Hotline and Helpline advocates were unable 

to answer 66,884 (23%) of these calls due to increased call volume. Some states have seen 

particularly dramatic increases: New Jersey - 43% increase in the number of crisis calls; Rhode 

Island - 45% increase in hotline calls; Vermont - 40% increase in hotline calls; Missouri - 65% 

increase in individuals turned away when shelters were fu1l 48 Challenges maintaining private, 

state, and local funding have intensified this problem. According to the National Alliance to End 

Sexual Violence, 70% of rape crisis centers experienced a reduction in funding in 2009 and 57% 

cut staffing49 In 2010, the National NeNlOrk to End Domestic Violence reported that domestic 

violence programs laid-ofT or did not replace 2,000 staff positions including counselors, 

advocates and children's advocates.'o Sixteen domestic violence shelters closed in 2009." 

The principles underlying VAWA have proven to succeed - many more victims now come 

forward to ask for help, police make more arrests, and prosecutors take more cases. However, if 

services are not available when victims ask for help, they may be forced to choose between 

staying in an abusive relationship and becoming homeless. They may never get the courage to 

ask for help again. 

The increased need for services combined with a reduction in available services and cuts to local 

law enforcement has created a shocking trend. Though homicides and incidents of domestic 

violence are still down dramatically from where they were in the early 1990s, they have started 

to increase since the recession tlrst began. Domestic violence homicides of women began 

increasing in 2007. FBI data show that from 2006 to 20 I 0 there was an 8% total increase in the 

number of women murdered by spouses, boyfriends, and fonner spouses. During that time, 

overall murders declined by 19%. States are reporting even more signifIcant increases in 

"National Network to End Domestic Violence. (2012, Febmmy). Domestic Violence COI1I1,' 2011: A 2~-hour 

census C!fdomestic vIolence shelters and sen'ices across the United States. \Vashingtoll, DC: Author. 

'1' National NchYork to End DOlllcslic Violence. (2011. January), Domestic J ~iolence Counls 2010: A 24-hour 

census afdomestic vIolence shelters and sen'ices across the United States. \Vashingtoll .. DC: Author. 

'18 All of the statc-spccific statistics wcre reportcd in 2011 by thc respective statc coalitions against domcstic 

violence. 

"National Alliance to End Sexual Violence. (2010). 2010 sllrl'~v ajrape crisis centers. WashingtOlL DC: Author. 

't, National Ncl\;ork to End Domcstic Violencc. 2011. 

5] National Nehvork to End Domestic Violence. (2010).2010 survey of state domestic violence coalitions. 

Washington, DC: Author. 

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domestic violence homicides: Alabama - 29% increase (2008-2009); Florida - 21.4% increase 

(2009-2010); Missouri - 35% increase (2007-2009); Wisconsin - 35% increase (2008-2009)52 

This recent trend argues for continued support for OVW' s programs and for research on 

domestic and sexual violence through our sister agency, the National Institute of Justice (NIJ). 

OVW has had a long collaboration with NIJ as well as with the Bureau of Justice Statistics and 

the Centers for Disease Control and Prevention (CDC) in the Department of Health and Human 

Services. These agencies are critical partners in our efforts to understand what works and to plan 

our future programming. The CDC released results from a new surveillance system, the National 

Intimate Partner and Sexual Violence Survey in December 2011. These data have given us 

valuable new information on the prevalence of violence against women and men. The CDC 

intends to conduct the survey annually, allowing us to measure trends over time. 

Now more than ever, we must invest in innovative ways to efficiently prevent costly acts of 

violence. OVW is using the latest research to target resources on effective solutions. 

Averting Domestic Violence Homicide 

Although the overall rate offemale homicide has fallen since 1993, female intimate partner 

homicide remains a persistent and troubling problem. According to the Bureau of Justice 

Statistics, an estimated 40% of female homicide victims were killed by an intimate partner in 

1993; that percentage increased to 45% in 20m." Some experts estimate that for every woman 

who is killed, at least nine are nearly killed (gunshot or stab wound to head, neck, or torso; 

strangulation or immersion in water to the point of unconsciousness; severe head inj ury with a 

blunt object weapon).'4 Other victims are also killed as a result of intimate partner violence. 

These include family members, friends and occasionally law enforcement officers who attempt 

to intervene, as well as children who become targets ofthe violence. 

The double tragedy of domestic violence homicide is the realization after the fact, in many cases, 

that the homicide could have been prevented. There is a growing consensus among researchers 

and practitioners that domestic violence homicides are predictable and therefore often 

preventable. In the majority of these cases, there was a prior history of domestic violence as well 

as other indicators of high risk. An II-city study comparing women who had been killed with a 

control group of abused women found significant differences in the severity and pattern of 

abuse." Most of the women who were killed had experienced attempted strangulation, threats 

with weapons, stalking, sexual assault, and obsessively jealous and controlling behavior by their 

partners. 

5: All of the state-specific statislics ,,,,"ere reported in 2011by the respective state coalitions against domestic violence. 

53 Catalano. S" Smidt E., Snyder, H" & Rand, M. (2009). Selectedjindings: Female \'ictims a/violence (No. 

NCJRS 22X356). Washington, D.C.: U.S. Department or Justice, Bureau or Justice Statistics. 

'" Campbell, 1. Glass, N" ShaIps, P., LaughorL K .. & Bloom, T. (2007). Intimate partner homicide: Review and 

implications of research and policy. Trauma, Violence, & Abuse, 8(3), 246-269. 

"Campbell, J .c., Webster, D" KOl.Oil-MeLain, J.. Block, C. R" Campbell, D" Cum', M. A., Gary, F" 

McFarlane, J., Sachs. C .. SImps, P" Ulrich, y, & Wilt. S.A. (2003). Assessing risk factors for intimate partner 

homicide. ,Valional Jnstitute o.fJuslice Journal, 250, 1'+-19. 

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By the time abuse escalates to homicide, it is likely that someone in the family, the 

neighborhood, or the perpetrator's or victim's workplace has been aware that something is 

terribly wrong. A 2003 NU-funded study found that despite certain limitations, a lethality 

assessment tool can be used to reliably predict women who may be at risk of being killed by their 

partners 56 Advocates, law enforcement otlicers, prosecutors, and the courts must take 

aggressive steps to plan for a victim's safety when these and other identified risk factors are 

present. OVW is undertaking a new initiative to screen victims, contain offenders, and provide 

victims in these cases with more comprehensive services over longer periods of time. The 2013 

President's Budget requests $4 million to expand this initiative. 

Homicide reduction strategies work. Since implementing its High Risk Case Response Team, 

Newburyport, Massachusetts has had no domestic violence homicides. When a high risk 

offender is identified, a team oflaw enforcement, prosecutors, probation otlicers and victim 

advocates use this information to search for open warrants, make arrests, connect victims with 

services, and use pretrial conditions to keep offenders in custody. Between April 2007 and 

March 2008, the high risk team provided ongoing risk management to a total of 55 high risk 

cases. Not only were there no homicides, but 91 % reported no reassaults by the offender and 

93% did not need to relocate to a domestic violence shelter.'? 

The Maryland Lethality Assessment Program (LAP) screens victims at crime scenes, protective 

order hearings, and in hospital emergency rooms. If a victim screens in as high risk for being 

seriously injured or killed, the first responder immediately calls the local 24-hour domestic 

violence hotline and encourages the victim to talk to the hotline worker. Over the past five 

years, Maryland law enforcement identified 17,604 high-danger victims through the LAP and, of 

this group, 10,394 (59%) spoke on the phone to a hotline worker. Of those who spoke to a 

hotline worker, 3,258 (31 %) availed themselves of additional program services. At a time when 

some states are reporting record high spikes in domestic violence murders, Maryland has 

witnessed a 41 % drop in intimate partner homicides over the past three years.'8 

In my own state of New Hampshire, we created a Domestic Violence Fatality Review 

Committee to encourage systemic changes to help decrease the number of domestic homicides 

through interdisciplinary training and community-based prevention education. lt is critical that 

all partners be involved in identifying high risk factors, gaps in system responses and barriers to 

safety in domestic violence situations. 

These fatality reviews are being implemented around the country. Montana's Domestic 

Violence Fatality Review Commission consists of 18 individuals representing several regions 

and disciplines, including: local, state and federal law enforcement; courts; victim services; the 

legislature; tribal communities; health care and mental health care providers; educators; child 

protecti ve services; legal services; and clergy. Team members review all available information, 

including police reports, autopsies, medical and mental health records, school records for 

'<i Campbell. e1. aI .. 2003. 

5' Jeanne Geiger Crisis Center. Inc. (2009). Greater .:.Vclf'bur.lport High Risk Response Team. annual saje~v and 

accounJahili1y report 2006-2009. Nc\vburyporL MA: Author. 

58 Maryland Network Against Domestic Violence. (Smnmer 2011). Reading the Signs Newsletter, 4(2). Bowie. 

MD: Author. 

22 
30 

children, criminal histories, shelter and/or victim-witness contacts, and court records. As a 

result, Montana residents have created long-term solutions to reduce the number of domestic 

violence injuries and homicides. 

Stopping Sexual Assault on College Campuses 

Research has helped us better understand how rapists target their victims and escape justice. 

This is particularly significant on our college campuses. College rapists may avoid the justice 

system by attacking acquaintances, picking women who will not be considered credible due to 

alcohol use or other factors, and by minimizing injuries by plying their victims with alcohol 

rather than using physical force. Nineteen percent of undergraduate women reported 

experiencing completed or attempted sexual assault since entering college. Most of these 

assaults occurred when the victim was incapacitated by alcohol. Rapes involving alcohol are 

much more prevalent than rapes involving date-rape drugs. 59 Risk of incapacitated rape 

increases significantly during college60 In one study, over 80% of undetected college rapists 

reported committing rapes of women who were incapacitated because of drugs or alcohol."1 

Many college rapists create "cases" that victims are least likely to report and that prosecutors are 

less likely to prosecute62 Only 2% of victims of incapacitated rape reported the assault to law 

enforcement.'" 

Campuses often fail to respond to college rapists,64 who continue to otfend. Even the bestintentioned universities' adjudication and other processes often blame the victim and fail to 

discipline the perpetrator65 In one study, 63% of rapists reported committing repeat rapes, 

averaging six each66 More than two-thirds (68%) of the repeat rapists admitted to other forms of 

interpersonal violence, averaging 14 violent acts. Their level of violence was nearly 10 times 

that of non-rapists, and nearly 3.5 times that of single-act rapists 67 This portrait of college 

rapists is more consistent with the data on recidivism among sex offenders than with the stillprevalent image of a college student who, under the influence of alcohol, mistakenly crosses the 

line between sexual pressure and rape.'" 

Our best chance to reduce this too-common type of sexual assault may be through bystander 

intervention. Although we tend to think of sexual assault as a crime usually involving only two 

"Krebs. C P., Lindquist, CR .. Warner. T. D., Fisher, B. S .. & Martin. S. L. (2007). The Campus Sexual Assault 

(CS'Ji Studv. Washington. D.C.: National Institute or Justice. 

m Krebs. Lindquist, Wamer, Fisher. & Martin. 2007. 

'~l Lisak. D .. & Miller, P. M. (2002). Repeat rape and multiple offending among undetected rapists. Violence and 

Victims. 73-84. 

'~2 Lisak & Miller. 2002: Krebs, Lindquist, Warner, Fisher, & Martin. 2007. 

63 Krebs. Lindquist. Warner. Fisher, & Martin. 2007. 

'"Lombardi. K .. Jones. K .. Dattaro. L .. Jimenez, C, Cheek L.. et a1. (2010, Febmary 24). Sexual assault on campus: 

,'Ijrustraling searchfhr justice. Washington, DC: The Center rOT Public Integrity. Retrieved rrom 

http://v..'\Y\v .publicintegrity .oIg/investigations/campus _assault! 

'~'Lombardi. et. a1.. 2010. 

A6 Lisak & Miller. 2002. 

,~, Lisak & Miller, 2002. 

,~8 Lisak & Miller. 2002. 

23 
31 

people, sexual assaults are often witnessed by at least one person in the bystander role,69 and 

nearly 60% of alcohol-facilitated rapes occur at parties70 Bystander intervention training is an 

innovative and evidence-based strategy to end violence against women71 This prevention model 

empowers and trains potential bystanders about the causes of sexual violence. It builds on 

research about community members' expressed willingness to get involved in these issues, and 

helps to minimize negative long-term consequences for survivors by strengthening infonnal 

safety nets in their social and community networks. 

The Vice President inspired the nation when he and Secretary of Education Arne Duncan visited 

the University of New Hampshire and announced unprecedented new guidance requiring schools 

to prevent and respond appropriately to sexual assault The Vice President called on young men 

and women to stop rape on their college campuses. He has also asked all of the federal agencies 

to follow his lead. OVW is proud to respond to his challenge, and in October hosted a two-day 

summit for 50 college and university presidents. Participating schools included Historically 

Black Colleges and Universities, the University of California system, universities serving both 

urban and rural communities, universities with recent sexual assault cases or recent consent 

agreements with the Department of Education's Office of Civil Rights, universities that have 

been leaders in addressing sexual assault (including the University of New Hampshire), and 

universities receiving OVW Campus Program grants. Changing the culture of campuses to hold 

rapists accountable and bring justice to victims requires leadership from the top. College and 

university presidents are crucial. We are engaging these presidents as partners in reaching other 

campuses, talking about how we can work together, and building momentum to reach a broad 

range of colleges. OVW is working with the Department of Education's Higher Education 

Center for Alcohol, Drug Abuse, and Violence Prevention (HEC) to launch a dedicated website 

and resources for university presidents and trustees. 

The center's online resources currently include an information page on complying with the 

Jeanne Clery Disclosure of Campus Security Policy and Campus Crime Statistics Act (Clery 

Act), a federal mandate requiring all institutions of higher education (IHEs) that participate in the 

Federal student financial aid program to disclose information about crime on their campuses and 

in the surrounding communities. In particular, IREs are required, among other requirements, to 

collect, classify, and count crime reports and crime statistics; issue campus alerts; publish an 

annual security report; and submit crime statistics to the Department of Education. 

Keeping Youth Safe through the Latest Technology 

Statistics show that teens and young adults experience particularly high rates of violence. 

According to the latest data from the CDC, one in six women were raped before the age of 25 72 

Forty-two percent of female rape victims were first raped before the age of IS71 More than one 

quarter of male victims were raped before the age of 1174 A total of 69.5% offemale victims of 

69 Planty, M. (2002). TIlird-party involvement in violent crime, 1993-1999. Bureau of Justice Statistics Special 

Report. (No. NCIRS IX91(0). Washington,D.c.. U.S. Dcpartment or lustiee. 

'0 Krebs, Lindquist Warner. Fisher, & Martin, 2007. 

'"7j \V\\-\v.higheredcenter.org 

'2 Black, Basile, Brciding, Smith, Waltcrs, Merrick, Chen & Stcve11S, 2011. 

'.' Black, Basile, Breiding, Snlith, Walters. Merrick. Chen & Stevens, 201 L 

'4 Black, Basile, Brciding, Smith, Walters, Merrick, Chcn & Stevens, 21111. 

24 
32 

rape, physical violence, Of stalking by an intimate partner first experienced dating violence 

before the age of25 75 It is essential to target young victims for prevention and interventionboth because they are at great risk for victimization, and because prevention and intervention 

could reduce the likelihood of future assaults 76 According to NISVS data, women who were 

raped before the age of 18 were twice as likely to be raped as adults: more than one-third of 

women who were raped as minors were also raped as adults compared to 14% of women without 

an early rape history 77 

Unfortunately, many do not know where to turn for help. Teens frequently go to their peers, not 

their parents, for relationship support A 2008 study found that 67% of students who were 

abused in a relationship talked to a friend, but only 13% also talked to a parent or other adult78 

Unfortunately, adolescents are often afraid or do not know how to intervene if a friend is being 

abusive 7

" 

Young people need an easy way to ask questions about dating violence, access lifesaving crisis 

counseling, and learn how to help a friend. This generation is less likely to pick up the phone 

and call a traditional victim service provider. Using online social networking sites and sending 

text messages on a mobile phone have become teens' favored ways to interact."O 

DO] has funded the National Dating Abuse Helpline (www.LovelsRespectorg), which is staffed 

by youth advocates and also provides an online chat option. OVW recently funded the 

expansion of the Helpline to include text messaging and provide all services 24-hours a day. 

Young people can text "I oveis" to 77054 and connect with a trained advocate. Since launching 

text capacity in September 2011, the Helpline has conducted over 10,000 chat and text 

conversations with young people in need. OVW is also reaching adolescents directly through 

www.ThatsNotCoo1.com. a website where they can learn by interacting with videos, games, and 

downloads they can share with friends. 

'5 Black. Basile, Breiding. Smith. Walters, Merrick, Chen & Stevens. 21111. 

'6 Campbell, Jacquelyn C" AlhuserL Je,mne, Draughon, Jessica. Kub. Joan, & Walton-Moss Benita. (2011). 

Vulnerability and Protective Factors for Intimate Partner Violence. In lW. White. M.P. Koss & A.E. Kazdin (Eds.). 

Violence Against 1I'0lllen and Children: Mapping the lerrain Volume 1 (243-264). Washington, D.C.: American 

Psychological Association. 

Ulhmrl Sarah E., & Najdowski. Cynthia J. (20ll). Vulnerability and Protective Factors for Sexual Assault. In J.W. 

White, M.P. Koss & A.E. Kazdin (Eds.), f,iolence Against Women and Children: Mapping the Terrain Volume 1 

(151-172). Washington, D.C.: American Psychological Association. 

GidycL, Christine A, Orehov; ski. Lindsay M .. and Edwards, Katie M. (2011). Prirmry Prevention of Sexual 

Violence. In Mary P.Koss, Jacquelyn W. White, and Alan E. Kazdin (Eds.). T 'iolenee Against Women and Children 

,Va1'igaling So/ufio}1s (159-179). Washington D.C.: American Psychological Association. 

Staggs, Susan L" Schewe, Paul A. (2011). Primary Prevention of Domestic Violence. In Mary P .Koss, Jacquelyn W. 

White. and Alan E. Kazdin (Eds.). Violence /lgair15;t Women and Children ,Vavigating Solutions (237-257). 

Washington D.C.: American Psychological Association. 

" Black, Basile, Breiding, Smith, Walters, Merrick, Chen & Stevens, 2011. 

"Black, B. M .. Tolnwn, R M., Callalml M .. Saunders, D. G .. & Weisz, A N. (2008). When will adolescents tell 

someone about dating violence victimization'> Violence Against Women, 14(7), N 1-758. 

'9 Noonan, R .. & Charles, D. (2009). Developing teen dating violence prevention strategies: Fonnative research with 

middle schoolyollth. T'ioleneeAgainst Women, 15(9),1087-1105. 

811 LenhaIt A., PurcelL K .. Smith, A., & Ziekuhr, K. (2010). Social media & mobile internet use among teens and 

young adults. Washington, DC: Pew Research Center. 

Lenhart, A, Ling, R, CampbelL S., & Purcell, K. (2010). Teens and lI10bile phones. Washington, DC: Pew 

Researeh Center. 

25 
33 

Technology can also be a tool of abuse."' One in three teens who have dated say they've been 

text messaged 10 to 30 times an hour by a partner finding out where they are, what they are 

doing, or who they are with. 82 Research shows that young women ages 18-24 experience the 

highest rate of stalking83 and that a quarter of stalking victims report being stalked through the 

internet or electronic monitoring. X4 Stalkers will sometimes make hundreds of unwanted phone 

calls, while also sending text messages, instant messages, or emails to the victim. This harassing 

contact is common in teen dating violence 8 ' One in four teens in a relationship has been called 

names, harassed, or put down by their partner through cell phones and texting."6 One in ten has 

been threatened physically via digital communication 87 Sixteen percent of college students have 

been the victim of abuse via technol0b'Y88 VAW A has funded the Safety Net Project and the 

Stalking Resource Center to educate OVW grantees on technology abuse and how to keep 

victims of all ages safe. In addition, activities funded through OVW's Campus Program seek to 

strengthen security and investigative strategies to prevent and prosecute stalking on campuses. 

The Virginia Polytechnic Institute, Blacksburg Campus, reported that: 

The number of stalking cases adjudicated on campus has doubled, which we attribute to 

increased awareness amongst our students about what constitutes stalking and how to 

report those behaviors. 

Engaging Men in Preventing Violence Against Women 

V A W A has been successful at engaging a broad range of partners to work together to intervene 

after violent crimes against women have occurred. We must shift from a historical paradigm that 

has focused on intervention, treatment, and accountability and address the entire cycle of 

violence at every stage. Many experts agree that it is imperative to involve men and boys in 

these efforts if we expect them to succeed. Men are eager to become partners. In fact, in a 

recent national poll, 73% of American men said that they think they can help reduce domestic 

violence and sexual assault."" 

Last spring, OVW launched the VA W A Engaging Men in Preventing Sexual Assault and 

Domestic Violence program. This is the first time in the history of OVW that a grant program 

focuses primarily on the prevention of violence against women and girls and acknowledges the 

critical roles men play in this prevention. The program supports multi-faceted strategies that 

involve men as allies, active positive bystanders and influencers of other men and boys. 

Authorized in VA W A 2005, this program uses the latest technology combined with hands-on 

81 Fraser. C .. Olsen. E" Lee. K., Southworth, C., & Tucker. S. (2010). The new age of stalking: Technological 

implications for stalking. Juvenile and }'amily Court Journal. 61(4). 39-55. 

82 Teenage Research Unlimited. (2007). Tech abuse in teen relatIOnships studv. New York: Liz Claiborne. Inc. 

:--:3 BaUlU K .. Catalano. S., R.:wd. M .. & Rose. K. (2009). Slalking victimization in Ihe Uniled Siaies. Bureau of 

Justice StatiSI/CS Special Report (No. NCJRS 224527). WashingtOlL DC: U.S. Department of Justice. 

81 Ballm. Catalano. Rand. & Rose. 2009 

"Fraser, OiselL Lee. SouthwortlL & Tucker, 2010. 

8" Lenhart, Ling, Campbell, & PurcelL 2010. 

x-' Teenage Research Unlimited. (2007). Tech ahuse in teen relatlOJ1ships study. New York: U/. Claibomc, Inc. 

ss Knowledge Networks. Inc. (2011). 2011 College daling violence and sbuse poll. New York: Liz Claiborne. Inc. 

89 Family Violence Prevention Fund and Verizon Wireless Fathers Day Poll, May 2007. 

26 
34 

Mr. SENSENBRENNER. Thank you very much, Ms. Carbon. 

I will begin by recognizing myself for 5 minutes. 

In my opening statement, I referred to a number of audits that 

had been done that indicate that a lot of the money in some of the 

grants that had been audited ended up being unsubstantiated or 

wasted. That is a matter of concern to all of us on this Committee 
35 

because all of us support the thrust of these programs. Every time 

a VAWA reauthorization has come up, there has been overwhelming bipartisan support for it. 

There is a cloud over the program not in what its goals are but 

in how it has been administered. What are you and your office 

doing to make sure that we do not have any more really awful 

audit reports from the IG that we have had in the past few years? 

Ms. CARBON. Thank you, Chairman Sensenbrenner. 

We take this issue extremely seriously, and we have no more interest than you in seeing that there be any fraud, waste, or abuse 

of any Federal taxpayer money. In my view, it is critically important that the funds that Congress appropriates go to the victims 

and to our communities to make them safer. So we have taken several steps in our office to ensure that we address these concerns 

and welcome the opportunity to work with you and others to shore 

them up. Let me give you a number of examples. 

The first I would begin with is—— 

Mr. SENSENBRENNER. Don’t have a long litany because I have 5 

minutes and I have got two follow-up questions on that. 

Ms. CARBON. Let me tell you that we have established our own 

grants financial management division which has been able to provide a great deal of expertise to our grantees. 

We have also looked into—you speak to the issue of the audits. 

We have looked into those very carefully and worked with the IG 

to resolve those concerns, and I am happy to give you detail later 

if you wish. 

Mr. SENSENBRENNER. Could you please do that in writing? And 

without objection, it will be included in the record. 

[The information referred to follows:] 
36 

Chairman Sensenbrenner mentioned three OIG audits ofOVW grantees: 

(I) a July 2010 audit report questioning $830,000 of a $890,000 award 

(2) a March 2009 audit report questioning $477,000 of a $681,000 award 

(3) a September 2005 audit report questioning $1.2 million ofa $1.9 million award 

OVW has identitied each of these three audits, as detailed below. These are examples of just 

how misleading some audit reports can be at first glance. Ultimately, each of the grantees 

involved was able to prove they had not misspent the funds 

(I) Community Legal Aid Society, Inc. (CLASI), Wilmington, DE: OIG originally 

questioned 93% of the grantee's cost. OTG recommended that CLAST remedy 

$829,340 in unsupported and unallowable expenditures and implement an accounting 

system that can completely and accurately gather, record, and report data for the 

OVW grant. CLASI has since provided the necessary documents to remedy the entire 

$829,340 - demonstrating to OVW that the costs have been appropriately supported 

and are allowable under their grant - and has implemented the requisite accounting 

system to better report data to DOJ. A sample test was administered to CLASI in an 

etl'ort to ensure that the payroll and contractor costs included in the amount in 

question were being handled correctly. The grantee responded to the tested items and 

provided the necessary documents as support. OVW has submitted final 

documentation to the OIG, and we anticipate the audit will soon be closed. This is a 

good example of a grantee that lacked sophisticated accounting, but was not 

misappropriating any funds. By supporting the grantee with technical assistance, the 

program is able to continue its critically important work. 

(2) Asotin County, WA: OIG made 20 recommendations to remedy questioned costs 

totaling $477,144 ofa $681,361 grant (or 70% of its expenditures). Asotin County 

has already provided supporting documentation to remedy 98% of the questioned 

costs. For example, the audit questioned $10,433 in equipment purchases, stating that 

Asotin's procurement policy had not been followed. However, Asotin was able to 

demonstrate that the equipment had in fact been purchased appropriately through the 

State's contract system, using a competitive bidding process. OIG has closed 18 of 

the 20 findings and is awaiting additional documentation to close the remaining two 

The county has provided initial documentation for the remaining $1 1,272 in 

questioned costs and is working with OVW to resolve the concern 

(3) Legal Aid of Nebraska, Omaha, NE: OTG originally questioned 64.5% of the 

grantee's costs. The grantee vigorously challenged the findings and provided 

additional documentation, as well as improved their accounting practices to comply 

with DO] requirements. Of the $1,277,909 that was questioned, only $39,030 was 

not closed. The grantee maintained that that sum was spent appropriately, but, due to 
37 

Ms. CARBON. Certainly. 

In addition to our grants financial management division, we 

work with the OIG to train our new grantees to ensure that they 

will understand what the requirements are so that they will not be 

in a situation where they may unwittingly make mistakes on how 

they report and handle all of their financial management responsibilities. 
38 

*The information referred to was not received by the Subcommittee at the time this hearing 

record was submitted for printing on February 19, 2013. 

We have also adopted a monitoring manual for all of our program staff to ensure that they are giving appropriate guidance and 

that we are collecting all of the information which the OIG has requested. 

Mr. SENSENBRENNER. Now, the DOJ has got an Office of Audit 

Assessment and Management, which is called the OAAM for short. 

And their job is to look at audits and figure out how to do a better 

job. Has the OVW sought the assistance of the OAAM, and if so, 

how successful has this been? 

Ms. CARBON. Actually we do work with OAAM. That is a part of 

the Office of Justice Programs where OVW used to be. We have no 

interest in seeing redundancies, so we do work with OAAM when 

it is appropriate. One example is the high-risk grantee list which 

we have worked with OJP, COPS, and our office to determine those 

grantees that need additional assistance and additional oversight. 

Mr. SENSENBRENNER. Now, when I was on the Science Committee as the Chairman, there are an awful lot of grants that the 

various agencies under the Science Committee’s jurisdiction pass 

out. And then-Ranking Member George Brown and I were very, 

very supportive of the peer review system. In my opening statement, I indicated that there had been problems with people who 

have been peer reviewers. Have those problems been solved, and if 

not, why not? 

Ms. CARBON. Yes, they have been solved. 

Mr. SENSENBRENNER. Good. 

Now, the final point—it is more of a macro issue—is the concern 

about overlap and duplication of effort with OJP and with the 

COPS program. I think everybody is going to have tough budget 

times as we get through the deficit problems. One of the ways we 

can keep the money flowing to help victims is to make sure it is 

not wasted in duplication of effort. 

What is being done with the other two agencies within Justice 

to put an end to duplication of effort? 

Ms. CARBON. Within the other offices, OJP and COPS? I am 

sorry. 

Mr. SENSENBRENNER. Yes. 

Ms. CARBON. I can speak to what we do with regard to that. Our 

mission is very different from the other missions. I can tell you 

that when we review our grant applications, one of the questions 

which we ask in our solicitations is the extent to which grantees 

are seeking or have received funds from our office. 

We share a monitoring list which has all of the grantees between 

COPS, OJP, and OVW, but specifically with regard to what the 

other offices may do, I would have to respond further to you because I do not have that level of detail. 

Mr. SENSENBRENNER. Thank you. And without objection, that 

will be placed in the record as well.* 

Mr. SENSENBRENNER. The gentleman from Virginia, Mr. Scott. 

Mr. SCOTT. Thank you, Mr. Chairman. 
39 

Ms. Carbon, on these audits that found deficiencies, this was not 

your office but was in the grantees’. Is that right? They weren’t auditing your office. They were auditing your grantees. 

Ms. CARBON. Yes. The OIG audits our grantees. 

Mr. SCOTT. And that is where they found the irregularities, not 

in your office itself. 

Ms. CARBON. Correct. 

Mr. SCOTT. Now, what portion of the grantees are government 

agencies and how many are volunteer groups? 

Ms. CARBON. I don’t know that I have that breakdown. We fund 

State and local governments. We fund nonprofit organizations. We 

fund educational institutions. I would be happy to get you that figure, but I apologize I don’t have that. 

Mr. SCOTT. If you could, because State and local governments 

ought to have enough accounting capability. 

[The information referred to follows:] 

Mr. SCOTT. But do you check the accounting capability of your 

potential grantees before you give them grants to make sure that 

they could follow through? 

Ms. CARBON. Absolutely. That is a part of the application process. When a grantee applies, we look at their budgets. We look at 

their accounting practices. We look at their policies. We also continue to review. If we determine that we may award a grant to 

them, we continue to review along the way and we will work with 

them throughout the course of the award as well. 

Mr. SCOTT. Now, the auditors have made recommendations. Did 

you accept and implement all of those recommendations? 

Ms. CARBON. Almost universally, yes. And the only reason I give 

you a caution is that we may have a disagreement with them and 

the OIG may agree that the recommendation ought not to have 

been made. Short of that, yes, we do work with them and resolve 

all issues. 

Mr. SCOTT. Generally speaking, what do you do for prevention, 

not just follow up after domestic violence? What do you do to prevent domestic violence? 

Ms. CARBON. We have programs to address prevention. That is 

an area that we believe is critically important because if we don’t 

begin prevention, we are never going to break that cycle of violence. 
40 

Some of the prevention programs we have are in our Engaging 

Men program and in how we work with our children’s programs because we find that it is important that we are getting services earlier on so that we can begin to stem that tide. Some of our grant 

programs deal with that directly; others deal with it indirectly 

through intervention services. But one example would be through 

our new help line. Another example is through the Children Exposed to Violence program, and a third would be our Engaging Men 

program. 

Mr. SCOTT. Can you tell us generally why OVW needs to be a 

separate office, not combined with others? 

Ms. CARBON. The Office on Violence Against Women has a very 

distinct mission. We are established to be the leading voice on responding to crimes of violence against women, and Congress recognized the importance of making a very strong statement, back in 

1994 when VAWA was first established and then in 2002 when 

OVW was made an independent office, that the crimes of violence 

are incredibly important and that we recognize and give attention. 

When we focus and have that specialized office, we can dedicate 

the time and resources to it. 

We have recognized that it is critically important that this office 

focus on a whole different process than other offices within the Department of Justice do. Our mission is to address victim safety, offender accountability, and build strong communities through the 

coordinated community response. We don’t believe that we have 

duplication, and we don’t believe that by being separate that we 

are in any way inefficient. And to the contrary, we believe that 

being independent gives us a very strong, distinct voice within the 

Federal Government, across the country, and in fact, internationally as well. 

Mr. SCOTT. And if you were combined with another agency, you 

would lose that focus? 

Ms. CARBON. Yes, yes, absolutely. 

Mr. SCOTT. Thank you, Mr. Chairman. 

Mr. SENSENBRENNER. The gentleman from Utah, Mr. Chaffetz. 

Mr. CHAFFETZ. Thank you, Mr. Chairman. 

Ms. CARBON. Good morning. 

Mr. CHAFFETZ. Hi. Good morning. Thank you for being here. I 

appreciate the work that you and your staff do. It is very important 

work and vital and makes a real difference in a lot of people’s lives. 

I just want to touch briefly on a couple different topics. I wanted 

to, at least initially, draw your attention to these biennial reports 

to Congress that seem to have a previous pattern at least of tardiness. I just wanted to get your briefest of comments on that and 

just a commitment that these reports will be a little bit more timely. 

Ms. CARBON. Very briefly, yes. The reports, I am very happy to 

report, are now all current with the exception of one that we hope 

to have to you by the end of the month, and I will do my level best 

to ensure from this point forward they all remain current. 

Mr. CHAFFETZ. Thank you. 

Perhaps this is included in some of those reports, but if your 

staff could help me. I would love to see, perhaps over the last 2 to 

3 years, a geographical map of where these grants are given, and 
41 

if you could help me visually see in a synopsis form where these 

grants go. I worry sometimes that we get so diluted that you look 

at a big, heavy topic—and you know, you could pick probably any 

one of these, and we get so diffused. Do we really make a difference 

when there are just so few dollars going here or there? I am not 

saying I am advocating more dollars, but it is curious to me as to 

whether or not more focus would be more effective and then being 

able to spread that out. I would just like to see a geographical map 

of the grants over the last few years. If you could help me with 

that, I would appreciate it. 

The next point I wanted to make is you obviously have had some 

concerns with the amount that is spent on these conferences. I realize it is a minor portion of the budget, but it goes to the 

frugalness of using dollars. I know you are fairly new to this position, but I wanted to get your perspective on what you plan to do 

to help rein in. There is this one event, for instance, that there 

were $70,000 for a 5-day conference attended by 60 people. It just 

seemed like an excessive amount of money to spend on event planning and wanted to get your brief comment on that. 

Ms. CARBON. Let me respond twofold. First of all, we certainly 

take the issue of conference costs very seriously. We have adopted 

within our office, and I think you will find across the Department 

as well, a new approval process for all of the conferences so that 

depending upon the expense for the conference, it is a different 

level of review. We have also established strict limitations with regard to food and beverage, and we are also giving guidance to 

grantees in securing locations so that they can minimize that conference cost as well. 

There are some conferences and some events where you can do 

training very effectively and very efficiently through a webinar, but 

there are also some where you really need in-person training. 

Where you are trying to change behavior, to change practice, having face time with people can be critically important to change that 

kind of behavioral programming. So we are very mindful and we 

target dollars on those kinds of events, minimize where we can. 

Mr. CHAFFETZ. And I appreciate it. We will not know the improvements that you make unless you tell us, and so along the 

way, if you could share those with us, that would be important. 

I want to go quickly to DNA backlogs. Where within this would 

that fall? Is that something that you have engaged in? I am concerned about these DNA backlogs, the processing of DNA after violence. There have been concerns in certain pockets of the country, 

particularly in California, where sometimes these DNA samples 

have not been tested. The expense for conducting these DNA 

tests—is this something that you all are engaged in? Where would 

that fall within these groups of programs? 

Ms. CARBON. It generally falls within, actually, other parts of the 

Department, but we are very concerned that when there is an act 

of sexual assault, that there can be a test done promptly if the victim wishes for that to be done. And I think that is one distinction 

that is important to make because some people are not always 

ready to begin and engage the criminal justice process. But there 

are other parts of the Department that are—you know, NIJ, for example. 
42 

Mr. CHAFFETZ. So why wouldn’t this fall within your area of expertise? 

Ms. CARBON. The DNA testing itself is—just happens to be how 

the Department has allocated resources. Part of that is OVC. Part 

of it is NIJ. But it certainly is a concern of ours to ensure, and in 

programming and policies that we have through our sexual assault 

services program and as well through the SAFE Protocol, it is important that we ensure that those tests be done promptly. The 

funding of those typically does not come out of our grant programs, 

though. 

Mr. CHAFFETZ. And, Mr. Chairman, last question. I am sorry. I 

can’t see the lights. 

Mr. SENSENBRENNER. 10 seconds. 

Mr. CHAFFETZ. Homicide reduction. What can you possibly do 

with $4 million, and homicide reduction is one of the categories 

here. 

Ms. CARBON. We can do a lot. There is a lot of very good research 

that shows what can be done to reduce homicide through lethality 

assessments, through different coordinated responses, through different levels of risk intervention with victims whether they come 

to hospitals or law enforcement, and how we design those programs 

through the reduction or through fatality review committees and 

other initiatives and have a significant impact on reducing domestic homicide. 

Mr. CHAFFETZ. Thanks, Mr. Chairman. 

Mr. SENSENBRENNER. The time of the gentleman has expired. 

The gentlewoman from California, Ms. Chu. 

Ms. CHU. Thank you, Mr. Chair. 

Well, I was once a rape crisis counselor and I went to emergency 

rooms to advocate for rape victims. So as you can imagine, I am 

very interested in the reauthorization of VAWA. 

And I was also very interested in the release of the Center for 

Disease Control National Intimate Partner and Sexual Violence 

Survey. This survey collected all kinds of detailed information on 

sexual violence, stalking, and intimate partner violence, victimization of adult women and men in the United States and gave a truer 

picture of violence against women and men that goes beyond the 

definition that has existed for the last decade, which was indeed 

a limited one. 

This survey is the first of its kind and it found, amongst other 

things, that if you include all forms of sexual violence, that one in 

two women have experienced sexual violence, and also that one in 

five men have experienced a form of sexual violence other than 

rape in their lifetime. And I would like to enter this survey into 

the record. 

[The information referred to follows:] 
43 

2010 Summary Report 

II "' , i " 
44 

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The National Intimate Partner 

and Sexual Violence Survey: 

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46 

TABLE OF CONTENTS 

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48 

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f A8LES AND fiGURES 

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50 

..... --..,--~ .... _ ... ..,.I ... '.',- .-· 

Contributo .. 

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51 

Acknowll'dgmenti 

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52 

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53 

EXECUTIVE SUMMARY 

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Prevale nce of Sex ... a l 

Violence VI<tlmlutlon 

.. ~ -..., ... --.. ........ ",.... 

'''' ..... -." ..... .... "_('U!OlI"'l>I<~'~_ 

_~"MO>lll_ 

_irltnol.WOo<l ....... "", """,,--",,--

~--""--. 

__ fott .. __ 

..... -"", ......... - r.bl.l.' 

",\1'10"'"""""\e>._~ "'_'UIol"",,-od 

... .",....,-_ ....... .... !-rM_"""'_ rIo~_,_od _ _"""0.....,...,<,,, _tI)"J __ 

_ 

_ 

«1_-"'" .. -- ..... ,,"""""'-,. ... Ing .... .....,.. 

~,In".,... .. tno .-_r_In,. ...... (IAOIj.."......_ __ ,,_ .. _'._""" "'","'-"-b",~m l"" 

--.... _.."....... .... ""'"" oooduto._.. ~ , ......... . ......,. __ .. -~ 

Ne.rly lin Swomen 

and 1 In 71 men In 

the U.s. hive been 

.... ped at..,,,...tlme 

In th eir live •. 

UfoIitM ..... U 101."'" P,_ , ...... r S .... I Viol ... ,e-... .s. w..,.. .. NISVS lO'O 

,~. -, ... ~ ''''--

--...- ~ 

--- " --- • 

---- "' 

---'-

,. --- " --- W 

~-"-----

--..... -- ..... ,,-~ .. 

II ....... · ,,-IU"'" 

... 

.-

.-

-

"~. .-

-, """''' ,--.- " u_ 

U 

" -'". 

" -. 

• - • 

U .-

• -

~'U,llll 
68 

, ... __ . __ ...... _._1 .... ...-.....,- ,. 

labl. 2,' 

UfOtl_ oo<I " M_~ Pr,,,,_,,, s.. ... ,_. -\1$ .""'. ~'SV$lO'O 

.- ,,- ..... ' -- _. ,._- ._. ,,-

• • ~-

~-- " - _ 

--- -

---..... _. .. "-- ~ 

.. - " _.- ~~ 

" ~- " ~-

--- -- ". " -- " " -- --- ~ <- .. ~- _ 

-... _- ~- . _ .. ---_.", ........ sa.u .. _oa. 

--

......, 101_1<<~ .... ' .. , .... ~l~--.. 

_ ...... ...... -...- _ .. _- .. __ ~"'_~2\. 

___ ",._ .. _ .......... ..... l.l 8 -_ ..... _ ........ 1II.1'ft1 -'''' __ fl.lIiI .. --.. _ 

----

""" ..... "' ... ,,-_ .. ' ......... .....,. 1rIni_1O_" 

-..""'"....,,,. -~ '-"" ....... -_ .. 

-_ ...... .. _ o-Ul.T ...... _ 

-~-"'­

.....-.._ .. _.- _~l ~ 

-~ _, .. 1_11""1_ 

--_ ~--"' _" __ "'_- .. -... _c-:l.II ___ 1D1oof __ __ 

""' ,-_ .. -.g .... -_ .....,"'_ '_1 __ .. _-...... """-' ...... .... "_M_ .. UIiIrog .... 

~-~ 

__ c _ 

____ .. 01 _ 

/:>.1\0]"' .. ...,.....,., ... _ -"'_ ...... -' .. __ fT_'.'~ _ _ .... _ J, __ "'''''' __ TIIo,,_ ....-

__ 

.. _-br __ 

l.A ___ ' ....... ,,'JOIi ____ "'No -_ _" __ .. _ "''''''~ 

..... - --

_".,.1.>$. ..... I ' """,, 

................ ... """'aco_br ..... ..... U ... 
1 -, ! ilIIlj!l!!!il • j - , I ! iiB'! • i I lllllll. !i!lj!;!iil'l il !1 

h itj ,! I -j- II il& - 1 - J i!!ililii llili Ii 

I 

l I d ,; i h : li !tl!' e Hf l'I' .. 1 j • t <>...!!! ,., II! Ii • ! 'lh !E, ! }JBllj'j! , - d I $d i 

 ' , 1,,-"-" • -' j ! I, 'W !1'!!'I!'ll 

 ii 

_

1 IlIl 

 I I I , I I H 11!!lillltllljlljtl! 

, 

 f iUiulll 

] I'!' 11 iI".! 1'1 

 !I I' •• ' - 1 -I! 

i ! II III 

 , j III 
70 

",. __ • ____ ........ I'"'I~_ 21 

T~bI.l.4 

Uffll .... P ... _. of St.~ , VIoI_I>y~ ... rUh"i<~y ' - U,S, _. OI'SVS Ul0 

.... ~ ~- - _. 

,~ 

-. - - ... 

- - ....... " 

'"

--- - --_. . , , . " "' . , , . - -- ~- '"- . ---. ,,- ,- ----... -.~-~---.... ------~--.- --"""-- ..... --...... -..... ~ ......... 

(1 • .1'JiI __ .... ...-riy ....... ~d "' ..... _!J1~....,., .... ...-_""""'""''''"''''' tto<ticlumg __ ..... ~ 

.-.-_01 ..... ...,100 ""' •• __ ..... _1,'"' "' .............. ,.J..-.. ..... ., -_ ""'--I>fhg"".. .. ....... - Typeof Perpetralor 

In lifetime Report,of 

Sexu.l Violence 

.. ~ TheINjoll<y "'''''._ .... ..... -...... ~ ..... ....... "_IIIore"' ...... '" -,.,..,.,"'._1"."" ....". ... _ .. ..." ..... - ~""'-.-"'''' ........ 

""""'''_IT_23I._ 

.....""O .. _""' ..... IOO.MI/ -boong,."..,,,,, .. _."' ___ .. -........ '''' IIU"I .. _", 

boJov'_br·'·~_ ..... ,.....,.._ ... po<lo ... ",......"",."""""'- "".."" ''''I''''''''''''' .... _ . .".,,"'''' '''' 1>fhg 

,........ _ ..... ~~-­ "'--,""-""'1 -.-",. 

_.,--""..",.'" .... ~ 

...-.".>tM> 

MO'lvktllruaf 

ripe knew lkeir 

p.rpetralo ... 
71 

",, ____ 10> ... __ 1 .. "-'_ 

Toblo l.5 

Ul.d .... ~, 01 s..~ ...... 01_ A ..... g _Ykd"" by T';p. oIl1orpotr. ,or' -

NISVS 1Ol0 

-"'''- ,....,-' _. -'-_. _. _. ........ ,' --_. _. - • .u ." " ~ _.- ., '" ," " W .. --.. _"' ...... ." " •• .. -

--- _ .. ., , .... ~ 

.-

-- ~ u .. '" --- ru ., u ." w -,- ., '" .. '" ., 

--.- ..... --_,._-- ... -,-~ .. --... __ ... ...... - ... --~.--•• -'<I-"'" 

,..--

--"'--- -~----.,<- ..... ---~.- ----....... ----- ......... -- ... - .-.... -... ---..... ~ ......... .. _""" .... "', ........ _, ""_131,'''l ____ 0)' 

.. --~..,.'"""'* 1'1<_1".'''''''''_0)'' "'"-1_, ....... ...-.. """'''''im, .. Ot<l",_ '_0IpooJI<tI ...... ..., .... W<I --....,..,..,""' ...... '" .. 

_ 

I"" .... _ .. OO-".ond ...... .."...... 

S ...... Vlc>Io-n<.O!'-

' hanA.opo ""'-...,........,. ........... ...... "' oI .. ....... rpoo' _._raoi. .. "'_"' .... ~ 

.... _"' .. "...,...".",Ol 

....... 

........ """"''''-_..,., .. .... -- ... 

__ ......,....."'-~ ... 01 .as.IW"' _ 

--. .. "",ot<I...-""'" 

ov..,"" ...... ... " ..... "'1lHiII' ,,",r-.""""""'l", .• ,,,01 

""""-1" 

--"""""- --", __ .. ",-",.",,,,, '---"""" 01 "",-<00<"" _"' .......... _'190""'_ ,.,.,....",, 10, __ 15O.SttI1T_m 
72 

________ 1---- :u 

1.bl<oM 

.-........... $ot _ __ -*"""

..,..,... .. """"*',.IO<.- IfISVSJO'O 

-.-,..,- _. -- -- - ..... - _. --..... _ . ~ " "" 

-- ~ " .. ~ 

'" -_.- ~ 

., U 

-- ., .. ., 

-- ' .. .. " ., ~ 

--- '" " " ., ~ 

_ 

---... _._,_ .... -_.-...... _ .... - ... _--- -_ 

-

-_ .. -----~-

.. _------ .... _-- =:::..~ ... ==::;:.,._::::"'t'=__~-' .. ----.... -' .... -... _.------,_ ... .... ,.. ... 

---<-.II' 

~.--­ ..... ')1>O'of.-- ---......, .... '" .... ... -_ ~--"" .... ..-.... 

.. - fOoIJ'W"'_"-

..... -............ ...- .. _ ... __ TlIo 

....,...,01 __ "'_ 

-_ ,_1t"1"IOl"""""'" ... - ,..---- (l1.1'lI"",, ___ 

....... __._, .. M, 

~ -'<""'._ ... l--

'" _1T_uI. 

Number 01 ,.,petlat"" 

I" UfIltlme AeporU of 

Sfll(Ua' VIole"'" 

----

"'-"''''--''''' 

.... "' ...... ---- -..." ... "' .... _01 __ _ 

(7'~ 

____ b!' 

__ ,_ foI _ "po 

_'IOlc'aOOOl~ __ .... '10.111.0001 

-""_ 

_"' __ .. -po'po .... ,......3.,~ 

1"-"'---

_ 

_ ..... .... "po_ 

"'--.... 

--- --- _po, ............ )10"_ _(JUIoI-,"",-

"'----",...).,~ 

101_-"'-""''''''' 

_ ___ H_ ..........,._""',3., ... _ IM/JI......, ... ..... - .. 

lloOIIW_ _-_ ........... 

.... 

...,.,...._ 

- .. ----.. ,.-.. 

--
73 

.... __ ... ____ • ...... 1 ... -..,_ 

flgun 2.1 

UlOIlm. N .... bor 0/ "",,..,,.10<, ......... ,-.10 1/IttI." of S ..... IVloI ..... - NlSlI$ nl0 

• ,,~ ~ 

• -- • - j: ~ 

• ,~ 

• 

• - - - Sex of P .. pelrator In 

Ufetlm. Reports 01 

Suual Violenct 

-_ ---"'.""""" _-..,.....- ... _- --, .. ~....,.- --,,~nPIii" --"'------" .... - _-..foo __ _ 

""')'IIt"'-- -"'''''-- _ u.._,,_,_ ''''_ 

_IIUIoI-," __ 

""""d d.-

_~"",_d""_ 

__ 

__ 001\1 ~ 

_ _1l'UM_'- ........ ...:IIoI!oo_,. 

..- _1U.... .lloI.foo_ --- --- --'iI .... ,,-"'- 111'""",_"",,"_ _ 

"--"""-- .... ---- -_ .... -

The majority of 

' "",ak! Ylctlms of 

rape and .... ual 

YIoI~ om., tholn 

~pe~portedonly 

IIVIe peope~tOf>. 

ForIlV .... ,"" .... 

of the perptt.-tor 

waMd KtOH 1)'PU 

of ..,>w.' ~Iolenc.. 
74 

___ ' ____ ......,1,. .. _'_ ;J 

FIt"'·2 ~ 

~ge.' 11 ..... ' f lrn (;ompl. ,,,! HOp" \Il,Uml .. """ 

InLllorl_"-1If<ttnaI.VI<tIm. - NISV51010" 

-'-W -

._/ -~ - ... 

--_ ..... ... 

_ _ ..... ... --_ .. - Aile ,uhe Time of 

Flnt Completed Rape 

__ 

V1ctlmlzulon --...01 mo __ __ 01 _ ,_ .... __ 

_ lS ,""","",_'~ 

-'""'*'1<-

___ .. .... oI -..1 '"I2J.'" _ot·,,_""'_,1.A 

.... _ .. ·OI_UI --..,.,101 __ nVOil __ .... --_ ..... 

_ ..... __ 01-

_01 .... _.........._mo,._. '..,.m.lll1 

'0 

__ 

..... 0lil .. _ ........ ..... _01 .... 

_ ... .--..... '0 

,,""' .. 

_ 

.,...".-1"" __ .. _Ior Ior _ ... 

.. _-.. - ----- --_ .. -...... .---

Most ~mal. ~Ictlml 

of ",mpleled <'pI 

tKp".I01nnd thel. Ii",._ before the 

iO~ of 2S and elmoll 

Nlf operio!nc:e<I 

rhd. 1\ ... <ompi«o<I 

~p"before~\L 

O __ ·Qua" ... 

01 m~le Vic:tlm, of 

completed r.pe 

~pefMnced IhN 

fin, tape a\ Of beIo<e 

.... age ol lO' 
75 

"9~, .l.l 

w_"" 'oM'o on Mul, ' by W ....... , "'PO. 

... MI_-NtSV3l0l 0 

"'''-

~-

-.. _ .. .--. _ .. .. _ -.. -

-~ 

"'_.'--"'- ......... _ .. _ ..- -_._----_ .. _-

A.,.. VlCI;ml,.,ion IS. 

MlnOf ,ne! Subs",u.nt 

Aa,..Vlctlmiu!lon 

..... 01,,," "'__'_'' .... ,.,,....... ,l~) _ 

,._.,_._ rOft>Jllo< .. ' .... ...-.... "'I"oI .. _ .... ockrI,<_ .. 

_,_......,,_ 

14~oI""_ ..... oIid ..... <0 

... ,.tnpooo an.... _ _ 01 __ _ 

.... 

,_ _,_ .. _ .. ... _-- ---- '''"---...... - ..-.. _" .......... , 

, ...... -.. ..... , ...... _ ""_"""''''''._'0 .... - .. . _.- _ .... _,-

Morl lh'n one-third 

of wo"-w o_~ 

r.ped I. mlnor._~ .'$0 taped II HIIIlu 

(Ompilred to 14'!b of 

WOMen wilhout In 

.arl)' f 'poI hiSloty_ 
76 

"""""""' __ ... ........ _ · ...... 1""0 ......... _ " 
77 

"..""""" ... _ ... ,--...... -. ... -1 "," ____ ._ " 

3: Stalking Victimization 

"'''''--,,. ... ''11 ""_ .. ""h ..... __ ... .",...,.. ... probIom.t!.,"""J 000"_ ........ "', .. u""oOSo,,..,,M,,hof_ "' __ "' __ ""'1n\I 

b....., .. ' ...... ,.I1, .. ""' .. ... ~ ... -"" ..... """ .. , ........ "'1000 """" <oIlo9<,,-, .. _ .... l>OOOl. .. ....." 

....... _d,-'<011''''', "'-,,--..... '''' ""'_ .. ~bIof<>l"' .. _o- "",,,,,,,,,,,, __ .. 1<>, 

b"-""""""""." ... ,,. _ ........ , ... _Iq 

.. " ..... ,.,..,._ ... ,.., IM>_~ 'I.,,", ........... r", 

... 1U-.g ......... "" .... 01 ........ ,,,,,,- __ "" ..... .. _ r ... .. ,"' 01"~ .... 

.

""'_"'" .. _. __ "' ..... loo ..... C>lol co- .... "-'. __ • 10001, 

Thioom""' ............... ,_ 

.... "_."""""""'01 "ddnsI'-""'_ _ .... ",.. ... ' ....... 00 

So" ... IocIudo<!g"",,,, .. ,~,a 

of ..... kt." ... ,""' .............. ................ 01 __ "'" _ ....... 01 .... __ • 

...d ... ' ... ....,.01 .... "''' 

--~ 

IIoor ~rSYSII ... _I .. I\;I., ___ 

_ 

._01""-__ """"''''' ..... _ ......... "" . ....,_ .... _ ..... -""" -~---.- .. ,...,. .... ... ---., -.--; .. __ .... --..... .... -~-.. ..,.-""'.--.. -.. -... - """-- s....,. __ . 

. __ .............. ,--

._ ......_-----

.------ _ . ......, .... _""" ... _-_.""" --'" · _._ ............... _-_ ......... - • 

.

"""1 

. -..... -"""' ... _-"' .. - . ... · 

_ 

_ .. .._""' . --,,,,, .... -....... _ ....... _,, ...... - Prevalence of Stalking 

Victimization 

~ ...... -tIj" ... -

I'UOOJ'" ""' ........ ".oIt., .... .. -,,~ ..... ,,-...... .. .... -.. .. _ ..... "'" ...,.,.>rlwI .. _ ..... .... 01 .......... _ 10 .... _ 

.. _ .. I,.... ... JtI<JII 

rT>bIo J 1~'''''' ".,..,., .. " 

_ ...... ..... """ ''''-- .. "" ... """'" '

__ 

'''", __ 1'_ ............. ' 1 

--, ... kk'I<j, .. .......,. 

~_, .. ,."""u.l'OII ...... """ .. so .... ~ ..... 5,t_ ...... _ 

,,"Iooj-"-

...... _""_ .. """" 

-,. ~ .. .. _._ ;;..~~:..~.=.:.::-.:-.......:.=":,""_'"":t,.":"..:..~..:.;:::=-~:-. «-_ .... _--_ ........ ,,_. __ .. _. --~ ...... ", .-.... ~-.. --.. -.. -.-.. -........ ~ .• -.... _, __ .. __ .. __ .. _M._ ..... __ ,,_ . _____ .. __ " ... _ .. "" ____ ....... _ " ... _ ...... o., ... _· .. ~ __ 

.-,- ........ _ J ............... 

.... _ "" .. ... 

"" ____ ......... '~._ -.~- ......... .. _ • .. ,,_ 

...... 

-" ....... " _,..,,, ..._,_ . ~-,- ...... _,_··_~ 

__ 

.... -......... ..__ --
78 

.... "' __ ... ..-____ 1"" ......... _ 

, In 6women and lin 19 men In the U,S. h;weexp<!ri enclNl'talklng 

I' .ome poin! in !helr lIYflln which they felt very fearful 0<' believed 

lilal th~ Or someone close 10 l!>em would be harmed Or ~lIi d. 

- Tobl.l.T 

Uf." ... ond 12 "'0"111 Prev"' .. o 01 §"11<J"9 VlnI ... IDI"'" _ lI.S-w_ ... d M . ... 

,.. NISVS101 0 

_. ,- ,,- '" • -- _. ,-- -- .. "' ... ' 

- ~ ")/1II1II u t'" .. ~ " - " ,,- ~-" ... -- Tobl.l.l 

U/flI",. p,,,,,",.,,,,. 01 S.alkk'IJ Vlctlmlz .. lon by ~ocoIl'h"kitJ' - U.~. W-. 

MISVSlO1G 

.... - ...."- k' 

- ........ '" --- -~ _. - .-- '" "' "' W "' --.- ~~ ,- ,,"',.. •• .- -,. _ 

""--.... ... ----_. _--""--~ _ .......... ..... ---..-----.. --.- -

Toblel.) 

LifflIm. p,..-..... ,,' S"I~fn9V;<lI"'I .. 1lon by RacoIEd,"klty' _ u.s._, 

MISVS2010 

.... k ' ~- -...., .. ,..., -.- -~ _. - .-- -- -. " m. " .-" 

-

• •••• i ___ "" __ ....... "-_, ___ ..... _"' __ ·_ 

--.----- ..... -- ..... '"" .... ,. -
79 

""' ......... _ • ..-_ .. __ • ....,.1 -.-. 

f'lIIU,.3.1 

Uf.,Im. Ropoft. 0{ ~"'~I"V ""' ... , ~ ..... ,. 'll<tlm, '" Typo '" foc.~ b,..., __ NliVS >Ql0 

• "~ 

" • "3 i: ... • 

• 

" • - - -- _._. • -- -

-. - -- -- 1""",.3.1 

UIflIm ••• ""'" . " .. ,. ... ""'_ MaIoVl<~ .... "'Typo 0{ I.ct~ [0 .... 10 _ _ NISVS ~Gl0 

• .~ 

• 

• j: ~ 

,~ 

• 

• ~ 

" • -- - --.-. - -- -

-. ---. --

,, ~ 

_ 

--.. 

_ 

--.. 

.. .... ""' _<1000 .... ~,...,.., .. .. _,M __ 

........... 

I~""",,_I"­

"'_ ... , ...... - -_ _0010'!1,,_10'"'' ......... "..-

P,,",,,Ienc:. of St.-lking 

VlctlmluUon by R,e. 1 

Elhnlcity 

.. , .. _--....., ,"',--""-- _""",od"""",,,In"'_ 

(T_H ,,~Io< ""'''''_<I __ 

...... __ ... ,...,.., 

--....._, 

".,6 .... ' .. ~ ... J --_ .... , .. . ----......... 

.... --.. -,....,--- ---"', .. " ..... --_ 

---

_~UI

..... 

""'_ 

........... -, ..... oIM ..... "' __ _ 

.... ___ wo,_ 

1-"'''' _''''''''''''''''''' ..... _---'" ------ _00-',_-

-----

Tlctlu lked In lifMim. 

Reports ofSt.iklng 

Vlctlmlutlon 

~""""'01 __ _ !O".~ ... , ..... _....., , .... _ ... "'_" •• '"9 

_',......,_od""~ _od_,,_1ng -"' _' .... _ .. ....... _-..... ," ............... '" II' ..... ........., -.-.......... -

" 
80 

.... __ .... ·_..-1 ....... -_1 ... '."" 

Flgu,.l.l 

l/fo,lm. Rljtotl< of S,.' kln9 Among F ..... I. VlClIm. 

by fl"po oIl'orp<1,.,,,,' _ NISV5 1010 

• 

• ~ 

" j: 

• 

, 

" ~ ,~ 

-- -'. -

-. - - -.-... - •.. ~-... -.. - ... - .. --- __ oM __ _ 

_ .. _--_._-_ ...... - ----_--- ... _--_ .. _ ... -~ 

Two·thlrd. of lemal ~ vicdm. of n.lklng 

"'f~ stalked by Intimate p.rlnH<. 

Male victim. won! primarily 5I~lked by 

Intlmalt parln, r, or acqualnlantf •. 

_ .. _ ... ..,.,""""tIJoo ......-I}$~_._<"""" 

r_otnoc .. """"'''onIo>!I "''''"''-~ -.....-..,"'-.......... "' ..... _(7 • . ""l' ........ 

~-_ .. -.... ..... , ..... -."' ...... "'" Ir_l.l~ .................. """ -t.oong-"' .... ... ""' ___ .... 01 

__ f1'_""'IOd~ 

--.. ~- T)l Pf of ~rpelralor 

in lifetime Repo rt$ Df 

Stalking Vict imization 

f .. _ ....... ""' ............... ~_ ... ,01 ... _, .. '" 

..,.... ...... ""' .. """ ..... '" d, 

.......... ... __ . _,- o"W<lng 

_"--""'IOIn!o,,,. cu" ...... '-' __ J>OI'.,.. 

.""_ ..... _ .. IR""1 

...-... ..-.;,"'.,"'- __ 

"""'!J9.>t. '.II. /obou! , .. a ,'U'IoJ ........... .... ""J"' ............ 

~...,..outd'O_ "''''"'''-.1« ...... ,..0'*1_ ... ""'....., ............ ..-"' ... ..... "'"'9""' ""''''-".-- . __ .......... __ 

.... - i>I''''.«.u ...... '''.(OO'I!!W,... 3-., . ......,. ..... """ 01 _ _ n'"""I_.tollllng 

", .... "",,""'UIo_,od O<o"'l"" "" ",.1 __ . 
81 

"'.N __ ....... ""SO ___ I .... ,. 

FIg~'.J" 

UIt,h". R_ru 015<.1111"9 ......... _Vl<tltn. 

by'Yl" 01_.010" _ NISYS 1010 

• 

• 

• J: ~ ~ 

• 

• II .... 

• ~ 

• - - _. - - - - -_._----_ .. - :-==::..------- ------ -----

:.:----------- _._---_ ....... _. flg~"'lJl 

UIflInt

_ N~_oI,.."...._-. It 0"" __ ,01 S,oIkltof- ImYS '010 

~ ~ 

• 

• ••• 

• j: 

• 

• 

• 

'!--.--~-----~-- - -.. 

Number of Perpetrators 

in Uf. tlme Reports of 

St.I.lng Vlulmlutlotl "".........,.01 __ 

----....,. _10 

_ ........ __ --._ 

.... 1UOI, ........... ~Ul. 

~I ... _- "' 

__ ~" 

__ -.._'~ .. (1.I"" 

"'_001"~"""" .. -............. ""-- _'''''O~.6OIj_ 

..... "'11"' ...... "....-... 

Sn of Perpetr" tor In 

Ufetlme Reportsof 

Suolld", Vlctimlutlon 

"'-_ItO,,*,,-

--_ """'-

_ ..... _-..... -.. -.. --~ .... .... --.;. 

_ ... to ..... ,,_....- ..... -.. 

.. "",Id". __ l 

""'-

_ ....... , .. ,."",,~ .... ,.....,..-..... _._-,.,.. .......... """--,- --- -"""- .. _-...._1<-"'1 ....... ,. .......... """"'_ ........ ------ ....... _--
82 

..... ____ ....... _ ...... 1""._._, 

Fig",. ).6 

A, •• t nOMofFln. SUlkl"9 V1"""I1aIlo" In Uftti ... A ..... , f .... I. \'I""", _ HISVS J010'"' 

-... 

.~~ -.:.; , --.--~ 

-~ ,, ~

--;:;;- .. _------

'A 

... 

... _-_ -...... _ .... ... -__ .. - -.-----... ~ ....... 

,.....J.7 

...... _.of_~._""""'Uf .. _ A_, M ... VkU .... _ HISV$lO' 0'" 

- --- .. 

.... _-_.",,- -...... _ ... -_.- ~-."'------.-... -.. 

. ~ 

More man half of 

f.-I. o;ictims .nd 

mora llIan ono-ltIlrd 

of "",10 Yklirns 

_,e lIalko<l befor. 

thug.Qf25 . 

Ag. allM Tlm. of Ant 

Sta lking V1ctlmlutian -_ .... ___ ....... _- • .... dof ..... 

........ of ... lIJnojlndKo<od .. " " .. ,. ..... ,,--, ... .. » lfI900m it ...... 7\........" "., __ .... ' .... _".,.. -_ ........ -__ ..... -... _ ..... .. _ " 

----- --'"-_lin< ..... ~~ ........ 

---

151. J.<,..,. ... 19f • 
83 

""' __ • __ ....... -.. ........ 1.101 ............ _, II 
 

 

 

 

 

 

 

 

 

 

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• I:. 

E ." c 

c 

,. 

.c 

e 

c 

• "0 

:> 

'i 

, 'i f" I,ll .. !lil'llt! 

011

1

1.', i If!, filii,!! IIU'I'lll!!1l , ,' i IIjl·!1 HI' ,'Ill·' l il Ii lliffl !lilll'li ' il 'I ' II II'. j' ,I HI Ii !PUIPt' iii l jt I rl'I IJ. '<I I Ii i ifl llHlfiihliH! !!jllf1l'}H'j'JllJ 

_ d L .11 .L, 

.. iHtiHiff 

Umllll Ii fiji I Hit I Hi Hll Hi 111j ;!'lfH liljlillltlilliilililillllJl!lii t 1111 
85 

,.". _______ 1"'.·_._, 

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Overlap of Rape, 

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Prevalence of , 

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Appro.ima""y 1 In 

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J5 men we re Injured 

•• • fe.ull of IPV 

tha"nduded "poe, 

physical "'ole ne ... 

and/or , 'alking by 

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--- .~--

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Among Victims 

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VI<I'm. 

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oftap<!. phyolnl 

vl~en<e. andl 

or "alklng by an 

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approxlmately6 out 

oltOwomen and 1 

In 6 men reported 

being concerned '0' thelr .. fetybeCluoe 

ofthe vloleflce In 

tha t ,ela,jQ<lshlp. 
102 

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Oi>l!'b..uon of IPv·~eI.l04.mp.o<U ~""'9111 ,­

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6: Physical and Mental Health Outcomes 

by Victimization History 

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~va ence of 

Ph)"linl and Mental 

H .. alth Outcome, ~ 

Victimization HI,lory 

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1.bl. 1.' 

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SeMual Vlol'!nc .. Vlctlm'zml;on Othu than Rapeamong Men 

robl. 7.l 

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St&tklng VIctimization among Women 

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Preya lence of Rape, Physical Vlolnce, andlor Stalking by an tntlm~te 

Partner among Women 

T.bl. 7.4 

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.... ____ .. ___ 1,."_._ 

Pt.VII,nCl of Rape. Physlul Vlol,n", ,nd/or S"lklng b~ In Inllm'I' 

Plrlnlf.mong Men 

T ..... 7-S 

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Prevalence of Ra~, PhY$lcal Violomce, and/or StalkIng by In Intimate 

Partner and Impact from these or other formf ollPV among Women 

rabl.l.6 

Uftd_ ~.I.n""'" R.po. Phy>1<Io1 VIoIonn, 01>111., Stolid"!! b, on Inti ..... Pan"., with 

'1'\1-...... '....,..-t b)' St • •• oI l1Htd..,,,,, - U,S. W"",on', N'SVSH.O 

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8: Discussion 

Highllghu I ndC,oss- --_.-- .... _ .. _-

C"'ttjng Flndln9s ---.. ~ .. --..... .......... _ .--- .... oIgooI/I< ... -

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....... _ _--- ..... _....-- -_ ......... - P"ulence E.ollmale$ __ -.J, _ __ ... .. _."""""'W __ ......... -..~ ..... 10 ~revlouJ National 

"'-"~-- ---- Studlu 

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References 

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Appendix B: Technical Note 

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137 

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138 

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139 

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142 

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Appendix C: Victimization Questions 

S~xual Vio ~n'" 

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144 

.... ______ ....... 1 •• ,...-.., ....... 

Control of Reproductlve ilnd Sexull Helltll • ...;;;r ... _._ . ,_ow .. "',....,... .... "' .... _. __ , __ • _.......... ..._ .......... __ .. "'...,....,oI.rw ......... ... 

Physluol Vlolenu 

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145 

Ms. CHU. Well, as you know, the FBI’s definition of rape was revised in December of last year. This revision marked the first update to the Federal definition in nearly a century. Rape is now defined as any kind of penetration of another person regardless of 

gender without the victim’s consent. 

How has the Office of Violence Against Women responded to this 

long-awaited revision? 

Ms. CARBON. Thank you, Representative. We worked very closely 

with the FBI to institute this change and we were very proud that 

we were able to work with them in doing so. 
146 

We are in the process—the responsibility actually falls under the 

house of the FBI’s Criminal Justice Information Services Division 

there. We are working with them to design the manner in which 

this change can actually be implemented through their data systems and will continue to work with them over the spring and into 

the summer. And then we will also be working with our technical 

assistance providers to give guidance to law enforcement and prosecutors and others about how to implement that change. But this 

was a change which we greatly welcomed and were very proud to 

be a part of. 

Ms. CHU. Well, let me ask about immigrant victims. Many people 

believe that the immigrant victim provisions in VAWA in the reauthorization bill are a brand new expansion, but in reality those provisions have been in VAWA since 1994. So I know that you have 

been implementing some of these, but I still feel like there are gaps 

in the service. Could you talk about what you are doing to address 

immigrant victims of sexual violence and what more could be done? 

Ms. CARBON. That is an excellent question. Thank you. 

All of our grant programs—most of our grant programs—serve 

immigrant women, and we want to do and we continue to train on 

the unique needs that immigrant women face. We have also encouraged, through our solicitation process, that—and in fact, a particular concern this year is that we want to make sure we are 

reaching underserved communities. In many of the reports that we 

receive of the evaluations of our programs, we find that immigrant 

women continue to be underserved. So we are asking our grantees 

to reach out to make sure that they are looking in their communities, making their resources available to all women, immigrants 

included. So it is extremely important that we do so. 

We also do so from another angle, which is language access. 

Many immigrants come to this country and do not speak English 

or don’t speak it well, and we have worked very aggressively 

throughout the Department, not just our office, in ensuring that 

immigrant women can have all services in a language which they 

can understand so they can have full access to those services. If 

they walk into a courtroom and they don’t understand what is happening and I or somebody else have not ensured that they have an 

interpreter, then I have not done my job. And we are asking our 

grantees to ensure that across the board as they do their job. 

Ms. CHU. And I would also like to ask about sexual assault. Most 

of the money from the Violence Against Women Act from the first 

decade was dedicated to domestic violence. However, sexual assault 

is, of course, equally important. So please share with us what your 

office is doing to address sexual violence. 

Ms. CARBON. We are ensuring that sexual violence is addressed 

in all of our grant programs where it is appropriate for them to be, 

but across the board. We also are instituting a number of different 

programs within the office, but in particular, you will be aware 

that the sexual assault services program, which Congress funded 

recently, is reaching communities across the country. We also have 

a special demonstration initiative looking at sexual assault, particularly in rural and tribal communities, to shore up those resources and then develop best practices that we can spread across 

the country. But we are asking that all of the programs make sure 
147 

that they are serving victims of sexual assault, as well as victims 

of domestic violence, and we often find that there is a very significant overlap between the two. 

Mr. SENSENBRENNER. The time of the gentlewoman has expired. 

The gentleman from Texas, Mr. Poe. 

Mr. POE. Thank you, Mr. Chairman. 

Ms. CARBON. Good morning. 

Mr. POE. Thank you for being here. 

Director Carbon, last year I sent you a letter asking you some 

questions, and it is one page. And I have received from your office, 

Assistant Attorney General Ronald Welch, a five-page, singlespaced, looks like 3-point font response. And you answered all my 

questions. So I do not want to mislead anyone thinking that I am 

complaining about your response. You directly answered every 

question I had. 

Mr. SENSENBRENNER. Will the gentleman yield? 

Mr. POE. Yes. 

Mr. SENSENBRENNER. Does the gentleman want to put the response in the record? 

Mr. POE. I ask unanimous consent. 

Mr. SENSENBRENNER. Without objection. 

Mr. POE. The letter and the response. 

Mr. SENSENBRENNER. Without objection. 

[The information referred to follows:] 
148 

The Honorable Ted roe 

U.S Hou~e llfiRellreliCn,/ltives 

W!lshingl(ln, DC 

Dear Congressman Poe: 

u.s. Ueputmel1t of Ju.sti~c 

DBcember 

fhis jg in response f<) your leiter dmed August 9, 2011. to Susan Carbon., Director of the 

ClOke on Viotcn~1! Against Wl1Il1cn regarding tile management of 

authori7ed by the Violence I\gains( Act (VA \VA) and admini,.tCl·",d 

apologize thr our delay in responding to your klier. 

YOU!' leIter asked if<.:oncems by Sl':nator in a.July 201.1 S.:nale 

J udki",ry Committ,,;: hearing Oil have been resolved "1' ~rc tbe proL'~~S of being 

rt's,,!vc,d. In you noted Senalor Gmssk-y', reti"rencI; to (<'pori tlf the Government 

and to audits conducted the Department's OtIilct: of Ihe 

10 report that problems raised Senator Grassley 

and described in yuur lett<:r either heel! resolved or are being resolved a pro,j_otive 

approach by OVW to improving grantee performance and preventing gram mismanagement. 

OVW takes very seriously and is dedicated to m;]mlgi.ng 

its programs effectively and are inherent ch;ill,:n~:es 

adl.nilliS1tcriing millions of taxpayer dollal's, 11 is that our gr;mt adllni:nisl:raltCln 

lictivities public confidence. Tn that end. w(]l'ks hard to cumwntly impmve its 

gram management, incorporating guidance from the OIG and the GAO. 

One of the critical tee·em improvements undertaken for grant oversight was establishillg 

OV\V'$ uwn Grants liinancia! Managemt'n! lJivislol1 (GfMO)' whkh has been both a 

programmatic and financial SUl::ce~s, 1 The GFMD was created \() address many of the grantee 

i.HVn Gran!.:'! Flnrul;clal Ma{iiig.:nH-~nr iXvl5.1nn 

OV\V (Quid provide in'lpi::.ved ;:uld mort elIte"""g'"'" rontnH.:t for serVl:ce" fht: (W0M) becam~~ operati<oT'ml m. time to procc\I,::i fi<;cai 
149 

The Hommlblc T~~d Po,' 

Page 2 

Ch,lIH,l,Uj;e, that OlG has highlighted in the past. Tht' major servkcs provi,kd by OVW's GFMD 

pre· and pn'I'awa~d financial grams administratiun; technical assistance 011 

issues and grants administration to 

service line; and (3) tmandal _ 

(iF!\1IYs knowlcdge ofOVW programs and granlees and familiarlly with the faced in 

the administration ofOVW prf)gnJm~ hils al~() cnab1ed OVW In more closely s.,rulinw: budgets 

and identify otlll!f issues be/ore they become' problems, otkn befort: awards .flte evcn mad", 

Your lett,,!, asked if OVW hdie\cs there is a S"riO!IS problem will! gr,anh:es 

gran I requirements. Although n~ar!y all Federal grantees re'lei"e some nxmnmcndations in 

audits. \'1e do not bdieve '[hat we have a "~eriotls probh:m" with grantees violating requirem~nts. 

A duse ofm,,,t IG reports on grants shows that many findings <lr" not about waste, fraud 

or abuse, but arc about inadequate accollnling and insufficient documentation, which is 

(,tlen remedied Whllll grantees provide appropriate paperwork and work \Vith OVW and OK; to 

impmve thdr a!:eoutlling practices. OlG closes the recommendations when it verifies that lhe 

problem has been solved or sutftcient documentation demonstrates that no existed. 

Findings that may initially seem ,igniilclll1t arc often easily ame! iorated also 

frequently challenge OIG recnmm~lldations, and these re"<Jnmlem:laltOn, may be mm::ndcd ufter 

the challenges lire reviewed. In tbe of cases, grantees have spent their 

fllnds and h.:nefit fmm the l~~li!lllS in the ~m1i1 proc.:". Ofcums.:, there 

are more ,(,riOliS findillgs, and "'"c lake appropriale llIe~sur"s with re~p(;c! to 

gruntees. 

examples 

the grantc0!'. 

mentioned tlin::e audit, in bis remarks at the 

mis1eadJ!ng SOllIe audit reports ",m be at first glance, 

Iha~ abk to prm·e it had not misspent any funds. 

1) COl!l!mmily Legal r\id Society, inc. (eLAS!), Wilmington, DE 

O!(i Originally questioned 93% orthe grante,~'s costs. O!G l'~emnml'nded that. CLAst 

rC!l'lcrly $82:9,340 in IlliSIlPP0rlcd and unallowable expenditures and an 

that can completely and accurately gather, n:cord, I'Cpo.rt the data 

few the 

eLAS! has since provided the IH:cc,sary docum"ms to rClUed) Ihe enli rc $829,340 ... 

demClnSltmllirlg In OV\V that lhe costs h~.vc be"tl apprupri,J.te!y supportt'd and are 

th"ir and has impkmented lilt' requisite acco!lming 11.) 

A sample lest was administered to CLASI in 

and contractor costs Included in the 3mounlin que~tion 'Acre being 

Ih", to the tested ilt'l11S and provided the ne,ce"sm'y 

OIG approvaL and we it 

nOIl,monelary finding, fmc! Sl~,ff 
150 

The [1011orahtc Ted Poe 

Pag~ 3 

rhis is a good example of a 

misltflprOpl'ial:ing aIiI' fill1ds, 

pmgmm able to c~m!jnUl;' its 

that lack"d sophisticated accounting, bur IHIS not 

,ujJpllfliing Iht! grantee with technical assistance, the 

impurtanl work. 

2) Asotin Coum)" \VA 

DIU mack 20 r,eeommcndatioos to remedy questioned e(1sts lOtaling $477,.144 of a 

$681,361 grant (or 70% of its expenditures), Asotin County has already provided 

supporting dOCIIlI1t'niatiol1 to remedy 98% of the questioned cost~, example, tlie audit 

questioned $10,433 in ~ratjng that A~otin's procurement p"li<::y had 

not been Ibllmn:d. Howev~r, was able to demonstrate that the equipment had in 

fact been purchased through Ihe SlJitc's COI1trac! sYHlcm, u~ing a 

C()mpetitiv~ bidding process. has dosed 1 g of the :'0 findings and is 

addi.tional dOCllmell1attDn to dose 11m remaining \wo,. The: has provided 

documentatioll fi)r till' remaining $11.21'2 in quc~tjlJncd costs is working with OV\V 

til rCSillv" the concern. 

3) Legal .Aid ofNd'll'aska, Omaha, NE 

DiG origi.naUy cOSb .. The grantee vigorOldy 

ch,a!ll~n£\cd the do,.umcntatiol1, as "wn as their 

:tt"'OLl!1\l.ng practices to ,vitn DOJ requirements .. Of the was 

qll\~s[ion~d.llniy $39,030 WiI, !Jot closed, The m'lintaineo th,; $J9,O:lO 'wa~ 

spent appmpriatd~, but due to l>tatf turnover a change in accO\Ulting procedures, 

c(luld Iwl provide adequate documentation, The has an otherwise dif:tinlgubllied 

recurd <I.S an OV W grantee am! had expended of its <"",n llon'OVW 

toward the than five limes the amount of questioned COSt5, During the 

process, determined that only $19,152 WilS outstanding. Jess tnan 1,5% ofthe 

questioned ()Qsts, The Department has closed the audIt. 

audit re';OIturlelll,bltiOl~S mav have a 

receipt to larger. more syst~mic ac,cOl.ll1I:1n!~ prolJiems. 

responses to address gmmee, wilh audit issues, 

monetary amounts at issue. grantees with 

small findings of a single 

thertfMe has devdoped a runge 

Additionally, it is imporl:ant to !lote that an "unresolved" or "open" audil does not 

nece%arily mean that 9. gra!lte~ is a continuing tlllanci"l risk. tbe contrary, ,,!ten a gnmlce 

t;ikes corret,tive steps an audit reC(1mm~lldation that satii;fy Doth OVW nnd tbe 

Inspector Genera! for future but the mcommemlatioll cannot be changed, For 

example, a may adopt better but b<ocause its limne!' record 

~e"ping was it cannot resolve that recoID1Tlc,ndaLiot1, So., while the 

reC~mnmel1datiol1 remaim open. the gJ'i:!!1lCC'S !lOW processes may give us confidem:e in 

pr~scnl. and 1l1turC ability to manag<: awards 
151 

The Honorable Ted I>oe 

Pag\: 4 

As n,:,!c,l'cncccl in your letter, Senator Grassley also stat~d thaI 2.1 01'22 grantees reviewed 

h~d some violatioll unhc grant requirements and that gmntee recordkeeping may be ;,msening. 

We cannut b<: ,-,,,rtuin to which he l'ias referring. bec(ltl~e there is 110 OJO report that 

Irom to 20! O. The audit repmt3 rncntitlllCd SenJJl.Of Grusslcy appear 

of individual identified from the OIG 

In our review of all the VA W A orG reports. we 

mh.1lt;, wlln wry few quc:;tion~'lI C\Jst~ and po~itive reviews of 

grante.t per!.ormancc. R<:cen! i!udils do not sho,," higherlevels of questioned 

(~osts. In faCT, a SeplCmb~r 2010 audit of Linc!;ln CNL) recommended that 

the gnmt<:c improve certain procedures but found no queslioned costs and slated that 

nb.llecl.i v,,g were being mel, along with grant requircment~." Another 20 I I) audit of the 

Asso,:iatiol1 of Community He'llth Centers examined $1,472,700 in ViI, \VA Rural I'mgram 

grants and questioned only $25,557 (l.7%j of costs ~~ $24,336 of which had aln:arly b",:n 

resolved and dosed by rhe time the filla! audit replJrt was 

Not every audit has such positive outcomes, bUI them is 110 inu i(Omioll thai gran! 

managC'ment or grantee recordkeeping is wo,scning. 

yOU!' letter i.nquired about the assiswllce in Ibl" gram recipients to avoid 

OVW has increased gral1l~ te~hnical assishillce to its 

grantees thmugh of the OFMD. The OFMI) is able to ha'e early and direct 

contact with grantets experiencing ci1uilcnBC'\ .. Abo bet:ausc witll grant 

progntms. G!'MD hilS been able to identit~, mnte cn.)SS-cl.tltln!4 

particularly rhose which are HOI\-prollt programs in 3"Jl1H, ,"If'" 

OVW has taken i, II) have staff from the Ortiee of Ille Gt'neral 

or ''''''''''''''''''''"' gmntee orientatiulls al.ong with till.' GFMD. Thc,,~ tIfe 

and new directors amllJplillnal f.or C(JO\inuation grantees 

flsca! the GFMD will also be: offering a mmlber of 

lJl',1Cr,u.<I, al1d trainings fur OV\.V grantees. OVW offers a range 

"·f."".,,,, ,,"" thJ"o~~gbl{)lllt t!I1(, year support grantees and prevent grant mistakes 

arc In re~pOllS" to a rm;ommendaliol1 from the OIG. added a section \(1 

solidtllti.ol1s that applicants to respond to a number regarding 

,);";,11"",,,·;,,1 OVW uses this info!111ati()1l to assess finallcial capability 

(lflhe applicant ,md 10 identify tho,e organizations that will require additional 

trailling :md tedmical assistance prior to making all award. Based on the provided II) 

thcse l!uestiom and feedback from the lIeld and statr, the GFMD srccific 

"Libj~;;l areas or requiring additional or training ,mel pmvid"s Ie!~"onli,re!lc~, 

to grantees their need,. 

The pmCeSS or grallt monitoring can also help avert dlscrcpanch" m" !'CHCW.t, or more 

serious gmntt'e problems. OVW's sclc~ti,m process is lmd which 

the hest ana to ~t:nc 

the kn(}\\'"hc'\v to serve \>kri111Sr they 

IOflg-ill\1'it' r-:cipients of lcderal grants. In many instances. 
152 

Mr. POE. All right. 

Ms. CARBON. Thank you. 

Mr. POE. I appreciate the work your office does. I will probably 

shock some of my friends in that I actually believe we should consider expanding the role of your office, even financially. 

No one likes waste, fraud, and abuse. Based on the comments 

you responded to in the letter, you don’t like it either and you want 

to get a hold of these grants and these people who received the 
153 

grants and eliminate them from the system. I commend you on 

that and keep doing it. 

In my other life, I was down at the courthouse in Houston for 

a long time, called the Palace of Perjury. And I have been around 

so long that I remember when domestic violence was treated by 

law enforcement as a family problem, not as a social health issue 

or a crime, but it is a family problem. I am glad we have moved 

away from that concept. 

Tell me about your education process of educating police officers, 

prosecutors, and judges on this issue. 

Ms. CARBON. Thank you. That is a great question, and having 

been a former judge, I can speak from that side of the fence as 

well. 

We have a very aggressive program throughout OVW to educate 

all of the professionals who interface with victims of sexual assault, 

domestic violence, dating violence, and stalking. We do this 

through technical assistance with our technical assistance providers—we call them TA providers—by doing institutes, sometimes 

in-service training, sometimes technical assistance training. Sometimes it is through bringing groups together as a group of law enforcement officers. Other times it is in interdisciplinary fashions 

because it is important that as a coordinated community response 

is implemented, that people understand what each other’s responsibilities are. But we have a number of technical assistance providers geared explicitly for law enforcement training as we do with 

judges and advocates. 

Speaking to the Judicial Institute, for example, we bring judges 

from around the country together, bring in law enforcement officers. We bring in other judges. We bring in psychologists. We bring 

in hosts of people to educate judges about how to better respond 

and to understand the dynamics that are involved. That same process of institute development is done with other professions as well. 

But there may be occasions where we will send a technical assistance provider directly to a law enforcement agency to work with 

that unit in their home turf. It is not necessarily always at a big 

conference, and I want to make sure that is very clear. We work 

one on one as needed. 

Mr. POE. A couple of quick questions. There are those who claim 

that this legislation demands and requires mandatory arrests. That 

is just not true, is it? 

Ms. CARBON. No, that is not true. 

Mr. POE. It is a State-by-State issue. So that is just another 

myth about VAWA. Is that correct? 

Ms. CARBON. It does not require mandatory arrest. However, we 

do ask, because it is through the arrest program, so if there is a 

grantee for that program, they certify that they have policies or 

procedures or laws in place that would encourage mandatory or encourage arrest but only upon probable cause that an arrest should 

be made. 

Mr. POE. When a crime has been committed. 

Ms. CARBON. Right. 

Mr. POE. Or probable cause that a crime has been committed. 

Ms. CARBON. That is often lost. 
154 

Mr. POE. The title, ‘‘Violence Against Women Act,’’ also deals 

with males, does it not? 

Ms. CARBON. It absolutely does, yes. 

Mr. POE. And there are the same services provided under the act 

in your office that help men, and that is violence against men as 

against women. Is that correct? 

Ms. CARBON. That is correct, yes. 

Mr. POE. Is there any reason in your opinion to change the name 

of the act? 

Ms. CARBON. No. There is no reason to. 

Mr. POE. And so let me ask you one other question talking about 

dealing with judges. You are familiar with the case from Maryland, 

domestic violence victim, who—the judge didn’t give her a restraining order she asked for against her husband. And so he came into 

her business and literally set her on fire. A wonderful lady. And 

we are not talking about statistics here. We are talking about real 

people that are hurt by others who claim they love these people. 

In your education of judges, do you talk about the use of restraining orders and items to keep people separated until a divorce 

is pending? Do you talk to judges about that? 

Ms. CARBON. We absolutely do. In fact, I personally was involved 

in chairing a national effort to develop a guide on the issuance and 

enforcement of civil protection orders. So I have both a great personal as well as professional interest in seeing this. We do educate 

judges all across the country on this and continue to do so. 

Mr. SENSENBRENNER. The time of the gentleman has expired. 

The gentleman from Georgia, Mr. Johnson. 

Mr. JOHNSON. Thank you, Mr. Chairman. 

Ms. Carbon, thank you for appearing before the Committee 

today. I appreciate the work that you do with the Office of Violence 

Against Women. The services that you provide to responding to domestic violence and sexual assault are vital. Because of your work, 

hundreds of thousands of victims have been served and thousands 

of arrests have been made. So I want to thank you for your diligence. 

I am heartened by the remarks of my colleague, Judge Poe, in 

terms of his understanding of the fact that there is a problem and 

he understands the extent of the problem and he even understands 

the fact that the Federal Government has an interest and a role 

to play in that regard as far as funding is concerned. 

And so I wanted to ask you a couple of questions. 

Number one, I know that there have been some oversight hearings on the other side of the Capitol about this program. I think 

Senator Grassley argued that in terms of VAWA reauthorization— 

he argued that during these difficult economic times, we simply 

can’t continue to allocate resources without verifying that the resources are being used effectively and efficiently as possible, kind 

of throwing a little cold water on the efforts of your group. And I 

know we are in a fiscally very conservative time right now. 

I want you to talk about the domestic violence shelters. In Georgia, they turned away 2,636 victims and their children due to a 

lack of available space in 2010. And this is because of cuts from 

State governments, cuts from local governments, and cuts from the 

charitable giving community. And I would like for you to explain 
155 

how your grants, grants to your organization, assist in helping 

these shelters. 

And also I want you to take a minute to address gun violence. 

Between 1990 and 2005, guns were used to kill more than twothirds of spouses and ex-spouses who were victims of domestic violence. Last year, this Committee, the full Committee, reported out 

H.R. 822, the National Right to Carry Reciprocity Act of 2011. It 

was considered by this Committee shortly after a lady out in California at hair shop where she did hair, a beautician, was stalked 

and then killed by her estranged husband. And I think seven other 

people were killed also in that rampage. And we were considering 

at that time a bill that I opposed. It would have allowed States to— 

or it would have allowed a Federal permit essentially to carry guns 

in States that may not allow persons who have been convicted of 

domestic violence from being able to get a license for a weapon. 

Can you comment on all of that for me? 

Ms. CARBON. Under Federal law, if—I am not clear on the permitting process because that typically is done by local and State 

government. But on the issue of under either civil protection orders 

or under criminal cases, I am happy to address the firearms issue 

there. 

If there is a protective order in place, for example, the offender 

is not permitted to have access or possession. 

Mr. JOHNSON. Yes. Well, now, under the National Right to Carry 

Reciprocity Act of 2011, I don’t know if I would agree with your 

current assessment if that law passes. But at any rate, effect on 

domestic violence shelters. 

Ms. CARBON. With regard to shelters, the Health and Human 

Services Department funds the shelters. We fund transitional housing programs and emergency housing. So we work in collaborative 

ways with them. 

But I would agree with you the need for shelters is dire. We do 

not have enough beds. They are chronically under-funded, and it is 

a great problem. So I share that concern. 

Mr. SENSENBRENNER. The gentleman’s time has expired. 

The gentlewoman from Florida, Mrs. Adams. 

Mrs. ADAMS. Thank you, Mr. Chair. 

I agree that we have come a long way from the times when we 

thought that spousal abuse and everything else was a family matter, from someone who has firsthand experience as a law enforcement officer and other things. 

But I do have some questions because I do recognize this program. I have been in the State and dealt with it on many levels, 

both as a law enforcement officer and as a State legislator. So I am 

just going to go through a few things. 

OVW was designed to be an office separate from DOJ’s two major 

grant-making components, OJP and COPS. And the DOJ IG has 

reported areas where these distinctions have caused overlap and 

duplication in grant administration. 

In what ways might consolidation of these offices, particularly 

with regard to sharing systems, procedures, other administrative 

processes, yield greater grant oversight and coordination and reduce costs, therefore allowing more money to go where it needs to 

be and that is the grants? 
156 

Ms. CARBON. We share the concern that we not have any 

redundancies in the grant-making components. Two things I would 

like to stress here. 

Number one, we do have common areas where we do work—for 

example, the grants management system, the computerized system 

for applications, is something we share in common. We share the 

high-risk grantee list. There are a few other things. 

But by having our own grants financial management division— 

I think this is critically important—we believe we can provide a 

better service to the grantees because of having more specialized 

staff, more specialized training, and more specialized technical assistance so that, indeed, the grantees can be using the funds as you 

all intended they be. Victims are getting the services and the communities are being better served as a result of this. 

Mrs. ADAMS. And getting to the grants, GAO in reports and testimony has pointed out that the difficulties in evaluating effectiveness of various viable grants because grantees either do not collect, 

maintain, and report required information to OVW or the data provided to OVW by grantees is often difficult to evaluate given varying definitions among different programs. It is important to be able 

to determine how effective these various VAWA programs are and 

whether the grantees are providing adequate services for the 

amount of the funding they receive. 

So what specific steps has OVW taken to ensure that grant recipients are collecting or reporting accurate and relevant data, and 

what are the major challenges you see with regard to meaningful 

data collection in order to determine program effectiveness? 

Ms. CARBON. Approximately 10 years ago, Congress asked us to 

begin assessing our grant programs and we began a very vigorous 

campaign, working with the University of Southern Maine, to collect the kinds of data that we want. And over time, we have continued to improve and refine how we gather that data. 

Over the course of every 6 months, we will receive, review, and 

analyze over 1,000 reports from our discretionary grantees and others. And then we funnel that information back and forth with the 

program staff, with the University of Southern Maine to make sure 

that we are collecting accurate data. Where we find that the instruments are not clear, we make improvements to that. We have 

worked with the field to continue refining so that definitions are 

consistent, so that the reporting forms are consistent across our 

programs so that we are gathering that data. But each report is 

distinct to the program so that we can gather specific information 

that tells us whether—— 

Mrs. ADAMS. So you are able to determine. 

Ms. CARBON. Absolutely, distinguishing one from another. 

Mrs. ADAMS. Explain OVW’s relationship with the Muskie School 

of Public Service at the University of Southern Maine. What has 

OVW asked the Muskie School to do? How much has OVW paid the 

Muskie School for their services? And is the relationship still ongoing? What is the Muskie School still doing for OVW? 

Ms. CARBON. Yes. And what I was alluding to there with the 

University of Southern Maine is the Muskie School of Public Policy 

at the University of Southern Maine. We entered into an arrangement with them, as I say, in about 2002, if I am not mistaken, al-
157 

though they had done some work for us for a couple years earlier 

but under a different framework. And with that, we have paid, over 

the course of, I believe since 2001—it may be a little bit earlier— 

approximately $17 million to review our 21 different grant programs. And of course, those programs have increased over time. It 

wasn’t 21 at the beginning. That collectively comprises about half 

a percent of all of our grant funds, which is very minimal. Congress 

has allowed us to spend up to 3 percent on assessment of that. 

So we gather this information—— 

Mrs. ADAMS. So it is still ongoing? 

Ms. CARBON. It is still ongoing, yes. 

Mrs. ADAMS. I have one other quick question I want to ask, and 

that is on STOP grants, which are OVW’s single largest grant program. It is a formula-based program to fund State and local law 

enforcement, prosecution, and victim services. All or almost all of 

these functions are also funded by the Department’s Byrne grant, 

you know, the Byrne/JAG program. You know that program. Right? 

Ms. CARBON. Yes. 

Mrs. ADAMS. And the Byrne grant is also another formula-based 

source of funding for the State and local governments. 

So how does the STOP funding differ from the Byrne grant funding, and is it necessary to have two such overlapping programs? 

Ms. CARBON. The STOP grant is distinguishable in its coordinated community response to ending sexual assault, domestic violence, dating violence, and stalking. And we do this through the 

implementation of—a portion of the funding goes to each different 

group, for example, a portion to prosecution, law enforcement, advocacy, courts, and then there is another fungible area that could 

go to anybody. We do this through the coordination of those services and ensuring that all of these four groups respond to the community-based needs that are determined. And it is up to the STOP 

administrators, working with their implementation team, to determine where the needs are, where the greatest victim service needs 

are, where the greatest offender accountability areas are, and 

working to do so. 

Mr. SENSENBRENNER. The time of the gentlewoman has expired. 

The gentleman from South Carolina, Mr. Gowdy. 

Mr. GOWDY. Thank you, Mr. Chairman. 

Nell Lindsey was a nurse at a local hospital in Spartanburg. Her 

shift had ended and she walked to her car to go home, but the car 

wouldn’t start because her estranged husband had put sugar in the 

gas tank. She called a friend to come get her. She was headed 

home when they saw an ominous sight, which was her husband following them in his car. And he had been ordered to stay away from 

her because he had broken her jaw on a family vacation. He had 

assaulted her in an Appleby’s parking lot, and a judge had ordered 

him to stay away from her. But he didn’t. He followed her. 

And Nell and her friend Celeste did a very smart thing, Mr. 

Chairman. They headed straight for the Inman Police Department. 

They were running red lights, running stop signs, jumping over 

railroad tracks. And Nell got out her cell phone and called 911, and 

they pulled into the back parking lot of the Inman Police Station. 

And just as Nell was getting out with a cell phone in her hand, her 
158 

husband, Marion Lindsey, pulled up and shot her in the head four 

times with two children in the back seat. 

Marion Lindsey killed Nell Lindsey. But in a very real sense, the 

entire system failed her, from orders of protection that are meaningless and can’t stop bullets to women being asked in South Carolina to go represent themselves in domestic violence court, to inadequate training. 

So Lynn Hawkins, through grants, Mr. Chairman—through 

grants—transformed our approach to violence against women, 

training law enforcement, training prosecutors, training magistrate 

judges, training pastors to view domestic violence as a crime and 

not a family matter. In 2008, we had zero domestic-related homicides in Spartanburg County. In 2011, we had one. So we went 

from leading the Nation in men killing women to actually doing a 

pretty good job. 

And, Mr. Chairman, I have got to give credit for that to Lynn 

Hawkins and the approach that she took through these grants, not 

embarrassing prosecutors and cops, but training them and training 

pastors, and putting together a CDV board with the community involved. And we are making tremendous progress in South Carolina. 

This stain on the collective soul of our State is slowly being lifted. 

But there are scores of other stories just like Nell Lindsey’s. 

There is Liz Chesterman and there is Tamika Huston. I have got 

all these names running through my head of women who were 

killed by men in Spartanburg and Cherokee Counties. And we are 

making progress. 

And I want to say this with respect to Lynn and the oversight 

of this grant program, because I sat through some of the review 

sessions, the oversight is in place, at least in Spartanburg, and the 

results are in place. So that is a former life for me, and I don’t get 

to talk to those people anymore. But if you have a chance to talk 

to the people in South Carolina, and Spartanburg in particular, my 

sheriff Chuck Wright; my chief of police, Tony Fisher; Lynn Hawkins; Barry Barnett, the prosecutor; Rusty Clevenger, the coroner, 

tell them thank you for taking us from first in the Nation for men 

killing women to having years where we have zero domestic-related 

homicides. 

I yield back. 

Mr. SENSENBRENNER. That is a very appropriate note to close 

this hearing on. I thank the gentleman from South Carolina for 

sharing this information with us. This shows that the programs 

work. We need to have them work better. We need to have them 

touch more people. We need to do better training. 

And if there are no further questions, without objection, the 

hearing is adjourned. 

[Whereupon, at 11:04 a.m., the Subcommittee was adjourned.] 

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