Evaluation Framework on Implementing the PWDVA

Chapter 4

30 Resource Tool for Monitoring and Evaluating the Implementation of the Protection of Women from Domestic Violence Act, 2005

Evaluation criteria: Relevance Key questionsSub-questionsCriteria for judgmentSources of data/Methods of data collection 1. To what extent has the PWDVA enabled the recognition of domestic violence as a violation of women’s constitutional rights? 2. To what extent has the PWDVA met the needs of victim/ survivors?

a. Is there any increased reportage of cases involving domestic violence? b. To what extent has the PWDVA been able to address the concerns of women facing domestic violence? c. What are the advantages/disadvantages of using the PWDVA when compared to pursuing remedies available under other laws? (E.g. maintenance under Section 125 CrPC, divorce on grounds of cruelty under marriage laws, injunction orders under the CPC, criminal remedies under the Dowry Prohibition Act and the IPC) d. Is there any further law reform required to protect women from domestic violence?

• Increase in the number of cases filed in courts to address domestic violence. • Increase in the number of applications filed under the PWDVA. • The PWDVA reduces multiplicity of forums for victim/survivors • Increase in the number of women approaching Protection Officers, Service Providers, police, NGOs, telephone help- lines, lawyers, etc. to seek assistance in cases of domestic violence.

 Court records and documentation on the number of cases ﬁled under the PWDVA including orders granted by Magistrates’ and other courts.  Documentation maintained by each of the PWDVA agencies.  Interviews with implementing/ enforcement agencies.  Interviews with women litigants and victim/survivors of domestic violence.

Evaluation Framework on Implementing the PWDVA

Evaluation Criteria: Effectiveness Key questionsSub-questionsCriteria for judgmentSources of data/Methods of data collection 1. Is the infrastructure put in place for the implementation of the PWDVA adequate in meeting the needs of victim/survivors of domestic violence? 2. Is the infrastructure put in place under the PWDVA effective in creating an enabling environment for victim/ survivors to seek legal redress?

Protection Officers a. Is the number of Protection Officers appointed adequate in meeting the needs of victim/ survivors and providing assistance to courts? What are the criteria used to assess whether the number of Protection Officers appointed is adequate? b. Are Protection Officers easily accessible to victim/survivors of domestic violence? c. In cases where existing government servants are vested with additional charge as Protection Officers, what are their other responsibilities and how does that impact on their availability to victim/survivors and courts? d. Have there been any increases/decreases in the number of Protection Officers appointments made and reasons thereof?

• Number of Protection Officers in comparison with the  Population,  Crime rates on offences against women and  Number of courts to be attended by Protection Officers. • Offices of Protection Officers are located in places, which are easily accessible to victim/survivors. • Number of hours spent by Protection Officers to comply with their duties under the PWDVA is adequate. • Victim/survivors are satisfied with the performance of Protection Officers.

 Census reports  Crime reports and NCRB and NHFS reports  Government circulars/orders/ guidelines/notes specifying selection criteria for appointment, jurisdiction of Protection Officers appointed and the courts they are required to attend.  Interviews with members of state government nodal agencies  Interviews with Protection Officers and other PWDVA agencies.  Interviews with victim/survivors and women litigants  Documentation maintained by Protection Officers.

32 Resource Tool for Monitoring and Evaluating the Implementation of the Protection of Women from Domestic Violence Act, 2005

Evaluation Criteria: Effectiveness Key questionsSub-questionsCriteria for judgmentSources of data/Methods of data collection Service Providers e. Is the number of Service Providers registered adequate in meeting the needs of victim/ survivors of domestic violence? f. What is the selection criteria used in registering Service Providers? g. What is the process used in the registration of Service Providers? What is the selection criteria applied? h. Is the range of services provided by registered Service Providers appropriate and reﬂective of the various forms of support that victim/ survivors’ need while seeking justice? i. Are there any variations (increases or decreases) in the numbers of Service Providers registered in the reporting period? What are the reasons for such variations? j. Have there been any efforts made to increase the number of service providers registered? (E.g. by registering non-government funded organizations as service providers) How effective have the measures been?

• Number of Service Providers compared to:  Population  Crime statistics on offences against women in the area  Number of courts in the area  Availability of other non-registered service providers in the area. • A wide range of services is provided by registered Service Providers including medical, shelter, legal aid and psychological counseling services. • Services provided are appropriate to the needs of victim/survivors. • There is an increase in the outreach and numbers of support services available to victim/survivors.

 Government circulars/orders/ advertisements on issues relating to the registration of Service Providers.  Interviews with Service Providers and those accessing their services.  Documentation maintained by registered Service Providers.

Evaluation Framework on Implementing the PWDVA

Evaluation Criteria: Effectiveness Key questionsSub-questionsCriteria for judgmentSources of data/Methods of data collection Medical Facilities and Shelter Homes k. Is the number of Medical Facilities and Shelter Homes notified under the PWDVA adequate in meeting the needs of victim/survivors of domestic violence? What is the capacity of facilities/homes that have been notified? l. Are the services provided by Medical Facilities and Shelter Homes appropriate to the needs of victim/survivors? What are the selection criteria used in notifying facilities/homes under the PWDVA? m. Have there been any initiatives to notify private facilities under the PWDVA? n. Have there been any increases in the numbers of facilities/homes notified in the reporting period? o. Do any of the notified Medical Facilities have a special unit to deal with victim/survivors of domestic violence?

• Number of Medical Facilities and Shelter Homes compared to:  Population  Crime statistics on offences against women in the area  Availability of other non-notiﬁed medical facilities and shelter homes in the area. • Services provided by Medical Facilities and Shelter Homes are appropriate to the needs of victim/survivors. • There is an increase in the outreach and numbers of medical and shelter facilities available to victim/survivors.

 Government circulars/orders/ advertisements on issues relating to the notiﬁcation of Medical Facilities and Shelter Homes.  Interviews with functionaries of Medical Facilities and Shelter Homes and those accessing their services.  Documentation maintained by notiﬁed Medical Facilities and Shelter Homes.

34 Resource Tool for Monitoring and Evaluating the Implementation of the Protection of Women from Domestic Violence Act, 2005

Evaluation Criteria: Effectiveness Key questionsSub-questionsCriteria for judgmentSources of data/Methods of data collection 3. Are the PWDVA agencies equipped to effectively perform their roles under the PWDVA?

a. Are Protection Officers qualified to effectively assist victim/survivors of domestic violence? Is the selection criteria (qualifications, experience, etc.) used for the appointment of Protection Officers appropriate? b. Are PWDVA agencies, including judicial officers and police, provided adequate training to perform their duties? c. To what extent has the capacity of PWDVA agencies been developed on the following:  Issues of domestic violence  Emergency interventions  Law and procedure  Case management  Maintaining documentation  Reporting and coordination d. Have the trainings imparted and capacity development initiatives been evaluated to assess its usefulness in equipping PWDVA agencies to perform their duties in an effective and gender sensitive manner? e. Is there any provision for regular orientation and ongoing trainings for Protection Officers?

• Selection criteria used for the appointment of Protection Ofﬁcers enables an assessment of skills and experience required for dealing with victim/survivors. • Content and methods of training are comprehensive and effective in building capacity of different PWDVA agencies on issues of domestic violence, law and procedure, referral systems, multi-agency and gender sensitive responses. • Victim/survivors are provided with gender sensitive responses when they approach PWDVA agencies.

 Advertisement or circulars incorporating selection criteria used for the appointment of Protection Officers.  Pre and post assessment of training and training reports  Interviews with Protection Officers and PWDVA agencies who have received trainings.  Interviews with victim/survivors who have approached Protection Officers and other PWDVA agencies for assistance.

Evaluation Framework on Implementing the PWDVA

Evaluation Criteria: Effectiveness Key questionsSub-questionsCriteria for judgmentSources of data/Methods of data collection 4. Do implementing PWDVA agencies work in a coordinated manner to provide assistance to victim/survivors?

a. Are PWDVA agencies aware of each other’s location, contact and other details? b. Have effective referral networks been established between PWDVA agencies? How have these networks strengthened the work of individual functionaries under the law? c. Is there effective coordination between the police and Protection Ofﬁcers in complying with court orders? d. Have any protocols been developed for facilitating coordination and multi-agency responses? e. How effective have coordination committees been in delivering multi-agency responses and services to victim/survivors of domestic violence?

• PWDVA agencies, particularly Protection Ofﬁcers, have lists of agencies and organizations that victim/survivors of domestic violence can be referred to. • A referral system has been put in place and is functioning effectively to provide coordinated and multi-agency responses to victim/survivors approaching PWDVA agencies for assistance. • Protocols have been issued to ensure effective coordination between PWDVA agencies. • Coordination Committees have effective participation from all implementing/ enforcement agencies.

 Protocols issued by the state nodal agencies to facilitate coordination.  Government circulars/instructions/ orders establishing coordination committees and referral systems.  Record of proceedings of coordination committees and reports of coordination committees  Interviews with PWDVA agencies and beneﬁciaries.

36 Resource Tool for Monitoring and Evaluating the Implementation of the Protection of Women from Domestic Violence Act, 2005

Evaluation Criteria: Effectiveness Key questionsSub-questionsCriteria for judgmentSources of data/Methods of data collection 5. Is the work of implementing/ enforcement agencies monitored in a systematic manner and their grievances redressed?

a. Is reporting by PWDVA agencies systematized? Is there any method of record keeping that is followed by PWDVA agencies? b. How regularly is the work of Protection Officers and other PWDVA agencies reviewed? c. What are the outcomes of the review process? How are grievances put forth by PWDVA agencies addressed? d. Is there any protocol for monitoring the activities of PWDVA agencies, particularly Protection Officers? e. To what extent are Protection Officers able to perform their statutory duties, including: i. Protecting victim/survivors approaching them from domestic violence and taking emergency action ii. Informing victim/survivors of their available legal rights and remedies iii. Assisting victim/survivors with initiating legal proceedings, including recording DIRs, filling in applications, facilitating access to legal aid iv. Assisting victim/survivors access legal, medical, shelter and other support services.

• Work of PWDVA agencies are regularly reviewed and monitored through:  The submission of periodic reports by each of the PWDVA agencies on work done on the implementation of the PWDVA  Study of documentation maintained on work conducted under the PWDVA  Periodic meetings held for review and planning • There is an available database on cases dealt with under the PWDVA • Protection Ofﬁcers are able to:  Protect victim/survivors from domestic violence  Facilitate their access to remedies of their choice including legal remedies and court orders under the PWDVA; criminal proceedings and to support services provided by Service Providers, Medical Facilities and Shelter Homes  Assist the court in discharging their functions  Assist with the enforcement of orders granted.

 Protocols on reporting issued by the state government.  Record notes of review meetings.  Periodic reports submitted by Protection Officers and other PWDVA agencies.  Assessment reports prepared or commissioned by the nodal agency.  Documentation maintained by Protection Officers and other PWDVA agencies.  Interviews with various PWDVA agencies and beneficiaries.

Evaluation Framework on Implementing the PWDVA

Evaluation Criteria: Effectiveness Key questionsSub-questionsCriteria for judgmentSources of data/Methods of data collection v. Identifying appropriate counselors and counseling services vi. Conducting home visits and making financial and other enquiries as directed by courts. vii. Assisting in restoring victim/survivors to the shared household and retrieving her possessions. viii. Maintaining records of cases ix. Assisting in the enforcement of court orders (including serving notices expeditiously) and following through with court proceedings till the victim/survivor receives appropriate reliefs. f. To what extent are Service Providers able to perform their statutory duties, including: i. Informing victim/survivors of remedies available under the PWDVA, her right to initiate criminal proceedings and her right to legal aid. ii. Informing her of the availability of Protection Officers and other Service Providers iii. Recording Domestic Incident Reports and assisting in the filing of applications iv. Facilitating her access to Medical Facilities and Shelter Homes.

• Service Providers are able to:  Maintain statutory records of cases involving domestic violence.  Provide victim/survivors with necessary services or facilitating their access to support services.  Facilitate victim/survivors’ access to court orders and remedies  Protect victim/survivors from domestic violence.

38 Resource Tool for Monitoring and Evaluating the Implementation of the Protection of Women from Domestic Violence Act, 2005

Evaluation Criteria: Effectiveness Key questionsSub-questionsCriteria for judgmentSources of data/Methods of data collection v. Providing counseling to victim/survivors vi. Providing counseling at the directions of courts g. To what extent are Medical Facilities able to perform their duties under the PWDVA and assist victim/survivors? h. To what extent have Shelter Homes been able to provide services to victim/survivors of domestic violence?

• Medical Facilities are able to provide effective and adequate services to victim/survivors, including  providing information on legal rights and remedies,  informing victim/survivors on the availability of Protection Ofﬁcers and other PWDVA agencies  providing necessary treatment  providing assistance with initiating legal proceedings (including recording DIRs) and collecting medico-legal evidence. • Shelter homes are able to provide safe shelter to victim/survivors and support them in accessing legal remedies and other support services.

Evaluation Framework on Implementing the PWDVA

Evaluation Criteria: Effectiveness Key questionsSub-questionsCriteria for judgmentSources of data/Methods of data collection i. To what extent are the police able to protect victim/survivors of domestic violence and perform their duties under the PWDVA, including: i. Initiating criminal proceedings when the domestic violence reported amounts to a criminal offence ii. Informing victim/survivors of available legal rights and criminal and civil remedies iii. Referring victim/survivors to Protection Officers and Service Providers to initiate appropriate actions and access support services iv. Assisting the Protection Officer while responding to an emergency situation. v. Assisting the Protection Officer in enforcing court orders. vi. Initiating criminal proceedings in cases of breach of protection orders. vii. Providing protection to victim/survivors of domestic violence as may be required. j. What are the hurdles that Protection Officers and other PWDVA agencies face while performing their duties under the PWDVA and protecting victim/survivors? k. Are there any practices/methods of functioning adopted by PWDVA agencies that have proven to be effective in protecting victim/survivors and facilitating their access to justice and support services?

• Police are able to:  Protect victim/survivors of domestic violence  Conduct criminal investigations and proceedings  Comply with orders of the court  Provide assistance to Protection Ofﬁcers when sought  Serve notices to respondents efﬁcaciously when required  Ensure that court orders are enforced.

40 Resource Tool for Monitoring and Evaluating the Implementation of the Protection of Women from Domestic Violence Act, 2005

Evaluation Criteria: Efﬁciency Key questionsSub-questionsCriteria for judgmentSources of data/Methods of data collection 1. Is the support provided to implementing/enforcing agencies under the PWDVA adequate in ensuring that they efﬁciently perform their duties under the PWDVA?

a. Have Protection Officers been provided with adequate and appropriate staff, equipment and office space to perform their functions in an effective manner? b. How many persons and in what capacities have been appointed to assist Protection Officers? c. Are any funds provided to Protection Officers to perform their duties under the PWDVA? Are Protection Officers provided additional allowance to meet travel expenses? d. Are funds/reimbursements made available to Protection Officers in a timely manner? e. Are any funds, reimbursements or office assistance provided to registered Service Providers for expenses incurred and for performing their duties under the PWDVA? If yes, is any separate budget provided to Service Providers? If not, are Service Providers able to meet their expenses within their existing resources? f. Do notified Medical Facilities and Shelter Homes have sufficient budgets? Does the budget cover all critical expenses?

• Office assistance provided to Protection Officers, including office space, equipment and staff is sufficient for performing their duties under the PWDVA. • Specific budgetary allocations are made for supporting the work of Protection Officers, Service Providers and other PWDVA agencies; and such funds are utilized in an optimal manner.

 Review of budgetary allocations and spending under the PWDVA.  Reports of Protection Ofﬁcers and Service Providers.  Interviews with Protection Ofﬁcers and Service Providers.

Evaluation Framework on Implementing the PWDVA

Evaluation Criteria: Impact Key questionsSub-questionsCriteria for judgmentSources of data/Methods of data collection 1. To what extent have remedies under the PWDVA reached victim/survivors of domestic violence?

a. Has there been an increase in the number of orders granted to victim/survivors under the PWDVA? b. To what extent has the women’s right to reside in the shared household been protected? c. To what extent have non-physical acts of violence within the home been recognized as domestic violence? d. To what extent have non-marital domestic relationships (e.g. unmarried women, daughters, widows, divorced women, sisters) been covered under the implementation of the PWDVA? e. To what extent has the right to be compensated for acts of domestic violence been recognized? f. To what extent has the use of the PWDVA reduced multiplicity of forums? What is the impact of pending proceedings in applications ﬁled under the PWDVA?

• Increasing numbers of women are using legal remedies to address domestic violence. • Interpretations of the PWDVA are in consonance with human rights principles and reflective of the spirit of the PWDVA. • The PWDVA is not used to effect forced reconciliations or force victim/survivors to return to violent homes. • Courts are able to rely on Protection Officers and police to discharge their functions, such as service delivery, collection of evidence and in the enforcement of orders. • Contributions of Protection Officers, police, Services Providers allow for the efficacious disposal of cases filed under the PWDVA.

 Analysis of court orders and court records.  Analysis of case law developed by higher judiciary.  Interviews with PWDVA agencies, lawyers/legal aid providers, women litigants and other beneficiaries.  Interviews with judicial officers and other officers of the court.

42 Resource Tool for Monitoring and Evaluating the Implementation of the Protection of Women from Domestic Violence Act, 2005

Evaluation Criteria: Impact Key questionsSub-questionsCriteria for judgmentSources of data/Methods of data collection g. To what extent have orders granted under the PWDVA prevented domestic violence? h. To what extent do courts rely on Protection Officers and Service Providers in dealing with applications under the PWDVA? How has assistance provided by Protection Officers and Service Providers enhanced adjudicatory processes? i. How expeditiously are applications under the PWDVA disposed? To what extent do the Protection Officers, Service Providers and police contribute to the efficient disposal of cases filed under the PWDVA? j. How have orders granted by courts been enforced? To what extent have Protection Officers and the police aided in the enforcement of orders granted under the PWDVA? k. Are victim/survivors receiving the kind of support they require at the pre-litigation stage? How have these impacted on legal proceedings filed under the PWDVA? l. Are victim/survivors able to access coordinated multi-agency responses?

In document RESOURCE TOOL. for Monitoring and Evaluating the Implementation of the Protection of Women from Domestic Violence Act, 2005 (Page 41-59)