Federal Victims Strategy, Mid-term Evaluation
3.2. Success
3. FINDINGS (cont'd)
3.2. Success
The evaluation examined short-term results in order to assess the extent to which the FVS is in line with attaining its long-term objective of improving the experience of victims of crime in the criminal justice system.
More specifically, the evaluation examined the extent to which programs, policies and legislation are relevant to victims; if there has been an increase in the capacity to deliver victim services; whether there has been an increase in the participation of victims in the criminal justice system; if there is an increase in the awareness of victims issues, services and legislation; and whether there is an increase in the sharing of information and materials related to victims issues.
Legislation
Key informants noted that the changes brought about with Bill C-2 and Bill C-10 have provided a more meaningful role for victims in the criminal justice system and are a real, concrete form of assistance directly to victims. These changes are considered by provincial and territorial key informants to have better taken into account the needs of victims and the recognition of their concerns. The changes were seen by provincial and territorial officials to highlight advances made in terms of the participation of victims in the criminal justice system and in the humanization of procedures, notably in the areas of sexual assault and those regarding child victims.
Satisfaction with Victims Fund Administration
Overall, Victims Fund applicants who responded to the survey administered as part of the evaluation indicated that they were satisfied with their experience with the Victims Fund application process. The most satisfactory aspects included[13] communication, information, fairness of the approval process and feeling that they were treated with courtesy and respect. The least satisfactory aspects of their experience were reported to be ease in completing the application process (12.5%), which was considered lengthy (6%), and understanding the objectives of the Fund (6%), which was considered as somewhat difficult to match with project objectives.
Victims Fund Distribution by Victims Fund Outcomes
According to the assignment of Victims Fund outcomes to projects by the Program Manager in the GCIMS, projects often contribute to more than one outcome[14]. The most common outcome to which projects were reported to contribute was increasing the capacity to deliver victim services. The sharp rise in projects in 2006/2007 that contributed to the outcome of increasing access to victim services is due to the take-up of funding for events related to NVCAW in 2006/2007.
| Outcome[15] | 2005/2006 | 2006/2007 | ||
|---|---|---|---|---|
| # of Projects | Total $ | # of Projects | Total $ | |
| Increase capacity to deliver victim services | 22 | $639,445 | 42 | $1,194,976 |
| Enhance capacity to implement victim-related legislation | 11 | $338,542 | 15 | $680,275 |
| Develop new approaches and/or products to help victims and deliver services | 15 | $416,421 | 17 | $553,458 |
| Increase awareness and understanding among criminal justice personnel, service providers and victims of victims issues/legislation/services available | 1 | $6,250 | 30 | $525,943 |
| Increase access to victims services for victims | 0 | $0 | 28 | $416,706 |
| Unidentified | 2 | $52,900 | 7 | $105,691 |
Most of the NVCAW projects were identified as contributing to the outcome of increasing access to victim services; however, they could have also been attributed to the outcome of increasing awareness among criminal justice personnel, service providers and victims of victim issues, legislation and services available.
The findings of the evaluation indicate that several types of NVCAW events hosted were perceived by their planners as being successful. Typically, the planners most frequently pointed to high levels of community member involvement and positive responses from the community and other organizations as a measure and indicator of success.
In terms of challenges, all event planners wrestled with shortage of time and some also had to contend with being short staffed or having a tight budget. Furthermore, it was difficult for some event planners to measure the level of success in reaching their intended audience. Nonetheless, event planners generally reported that their NVCAW events were successful because they attracted attention and elicited positive reactions from the community and other local organizations.
The findings of the evaluations undertaken on the 2006 NVCAW were used to inform the planning of the 2007 NVCAW by making changes to the Resource Guide and ensuring its earlier distribution and earlier availability of funding.
3.2.1. Increased Capacity to Deliver Victim Services
Federal interviewees and survey respondents, including Northern representatives, indicated that it is currently impossible to provide CWCs for every case, leaving them to work on only the most severe cases, such as murder, personal violence, victims with mental disabilities and cases involving children as victims or witnesses. Without a CWC, the victim has to work directly with the Crown who is generally on circuit and because of their very heavy workloads often do not have the time or cultural expertise to fully assist the victim/witness. One CWC respondent noted that more young women are speaking out and reporting crimes but they have no information or guidance to carry through with the charge. This can lead to victim retractions in order to avoid any more conflict with the accused.
Two training events/meetings were organized for CWCs between 2005/2006 and 2006/2007[16]. Generally an annual event, these were the fourth and fifth meetings that the PCVI has planned with the support of the Regional Directors in the North to respond to training and information needs of CWCs in the territories. The training topics were selected in consultation with the CWCs and Regional Directors in the territories.
The goal of the meetings was to contribute to the capacity (knowledge and awareness) of CWCs in their work by providing an opportunity for them to network, learn about and discuss common and specific issues about victim problems amongst each other, other service providers and experts. Given the unique nature of the role of CWCs in the Department, the distance between them geographically, the opportunity to come together, share experiences and interact with co-workers was reported to be very important.
All CWCs who participated in both meetings organized by the PCVI completed an evaluation questionnaire. The questionnaire consisted of several closed and open-ended questions that enabled participants to describe the particular benefits that they accrued from the conference, as well as suggest future support activities.
As a whole, the CWCs’ evaluations of the meetings were positive. Training sessions were reported to be well organized and an appropriate amount of relevant information had been presented. For the 2006 meeting, CWCs reported that their level of knowledge increased. On average, participants rated their level of knowledge before the conference as three out of five, whereas after the conference they rated their knowledge as four out of five (five out of five being “excellent”). Moreover, participants reported having “learned somewhat more than they expected” at the conference. Gaining greater understanding of topics such as family/domestic violence, sexual assault, suicide and gay/lesbian issues were noted as particularly pertinent to their work.
The participants agreed or strongly agreed that they learned new information that would help them in assisting victims and that the conference increased their ability to respond to the needs of victims. Several CWCs identified information on interacting with victims, including behaviours and reactions that are typical of victims after different types of victimization and how these experiences figure into cycles of violence and addictions, as key lessons. CWCs noted that they felt better equipped to respond to victims (e.g. “listen better”, “understand their background”) and better understood the role they can play in the healing process, including referrals, when appropriate, to alternative justice programs.
The annual training organized by the PCVI for CWCs was noted in the surveys and interviews with territorial officials to have had a strong impact in improving the quality of services by support workers by enhancing their knowledge around issues of working with court-based victims and witnesses.
3.2.2. Increased Participation in Criminal Justice System
The emergency financial assistance component of the Victims Fund provides limited emergency financial assistance to individual victims of crime or surviving family members faced with unusual or extreme hardship due to criminal victimization, whether domestically or internationally. In the years 2005/2006 to 2006/2007, two individuals received funding under this component for a total of $13,479.
As of November 1st, 2005, financial assistance became available to registered victims who wish to attend NPB hearings of the offender (under sentence in a federal institution or under CSC supervision) who harmed them. Funding is intended to allow victims to participate more fully in the criminal justice system by defraying the financial burden of travel and accommodations. The NPB funding is administered by the PCVI at the Department of Justice. In consultation with the Department’s Evaluation Division, surveys were mailed to victims of crime who had received financial assistance through this Fund. There were 156 respondents based on survey data received by March 31st 2007.
In the two fiscal years covered by this evaluation, 757 applications were submitted for funding under this component. Of these, 74 were denied funding and 509 of the approved applications received funding. The total amount of money requested was $487,672, while the total amount approved was $445, 096 and the total amount paid was $312,949.83.[17]
Most respondents felt satisfied with their experience with completing the application, communicating with Victims Fund staff and/or manager, being provided with the necessary information to complete the application, being treated with courtesy and respect, the fairness of the approval process, and the time it took to receive assistance. Supporting documentation (i.e. Fact Sheet, Questions & Answers) was provided to applicants to assist them in the application process. Most respondents received these supporting documents and 90% found them very easy/easy to understand. The information provided was useful in helping them complete the application and understand the approval process.
Almost all respondents (97%) found the funding amount they received to be “very helpful” or “helpful.” While most indicated that they would still have attended the hearing regardless of funding, some (19%) were unsure and 21% indicated they would not have been able to attend. Additionally, several respondents who stated they would have attended without the funding indicated that the funds still assisted them and eased their financial burden.
Several of the respondents who were only somewhat satisfied commented on having to pay expenses up front, loss of wages and lack of funding for childcare as being a financial burden. Some of these concerns have been addressed with the recent enhancements to the FVS, which have expanded the terms and conditions of the financial assistance.
Overall, most respondents (88%) were very satisfied/satisfied with the funding process. The ease in financial burden to travel, the respect and support received, and the helpfulness of the staff at NPB and Department of Justice were cited as the main reasons for their satisfaction. A large number of respondents also commented on the financial assistance allowing them to attend the hearing and engage in a process of healing. Most importantly, many noted attending the NPB hearing gave them the opportunity to participate and feel included in the criminal justice process and have their voice as victims heard.
3.2.3. Increased Awareness
Legislative Awareness
Some provincial/territorial officials indicated a continuing need to raise awareness and understanding of the amendments among criminal justice personnel. Examples of areas for further attention noted included the provisions ensuring the mandatory usage of testimonial aids with children upon application (unless it interferes with the proper administration of justice) and the elimination of mandatory competency hearings for children.
Awareness of Victims Fund
Key informants indicated several ways in which the Fund was promoted to provinces, territories, NGOs and victims and their families. FPTWG on Victims of Crime meetings were noted as a good vehicle for distribution and promotion to provinces and territories, and FPTWG members often disseminate the information to NGOs in their jurisdiction. Several provincial and territorial interviewees explained that dissemination of information to these organizations is not a formal process, and that they do not target all NGOs but rather focus efforts to NGOs “on their radar”. A number of interviewees indicated that more could be done to raise awareness amongst NGOs in their jurisdictions, including through the media (radio and television), awareness campaigns and direct mailings, although they acknowledged that this would be hard to keep up to date.
The Victims of Crime Advisory Committee was also cited as a way in which the Victims Fund was promoted. Additionally, communications such as news releases, print materials (posters, mail-outs and fact sheets), Websites, word of mouth and conferences were strategies used to disseminate and promote information about the Victims Fund. Lastly, interview ied with their experience with completing the application, communicating with Victims Fund staff and/or manager, being provided with the necessary information to complete the application, being treated with courtesy and respect, the fairness of the approval process, and the time it took to receive assistance. Supporting documentation (i.e. Fact Sheet, Questions & Answers) was provided to applicants to assist them in the application process. Most respondents received these supporting documents and 90% found them very easy/easy to understand. The information provided was useful in helping them complete the application and understand the approval process.
Almost all respondents (97%) found the funding amount they received to be “very helpful” or “helpful.” While most indicated that they would still have attended the hearing regardless of funding, some (19%) were unsure and 21% indicated they would not have been able to attend. Additionally, several respondents who stated they would have attended without the funding indicated that the funds still assisted them and eased their financial burden.
Several of the respondents who were only somewhat satisfied commented on having to pay expenses up front, loss of wages and lack of funding for childcare as being a financial burden. Some of these concerns have been addressed with the recent enhancements to the FVS, which have expanded the terms and conditions of the financial assistance.
Overall, most respondents (88%) were very satisfied/satisfied with the funding process. The ease in financial burden to travel, the respect and support received, and the helpfulness of the staff at NPB and Department of Justice were cited as the main reasons for their satisfaction. A large number of respondents also commented on the financial assistance allowing them to attend the hearing and engage in a process of healing. Most importantly, many noted attending the NPB hearing gave them the opportunity to participate and feel included in the criminal justice process and have their voice as victims heard.
3.2.3. Increased Awareness
Legislative Awareness
Some provincial/territorial officials indicated a continuing need to raise awareness and understanding of the amendments among criminal justice personnel. Examples of areas for further attention noted included the provisions ensuring the mandatory usage of testimonial aids with children upon application (unless it interferes with the proper administration of justice) and the elimination of mandatory competency hearings for children.
Awareness of Victims Fund
Key informants indicated several ways in which the Fund was promoted to provinces, territories, NGOs and victims and their families. FPTWG on Victims of Crime meetings were noted as a good vehicle for distribution and promotion to provinces and territories, and FPTWG members often disseminate the information to NGOs in their jurisdiction. Several provincial and territorial interviewees explained that dissemination of information to these organizations is not a formal process, and that they do not target all NGOs but rather focus efforts to NGOs “on their radar”
. A number of interviewees indicated that more could be done to raise awareness amongst NGOs in their jurisdictions, including through the media (radio and television), awareness campaigns and direct mailings, although they acknowledged that this would be hard to keep up to date.
The Victims of Crime Advisory Committee was also cited as a way in which the Victims Fund was promoted. Additionally, communications such as news releases, print materials (posters, mail-outs and fact sheets), Websites, word of mouth and conferences were strategies used to disseminate and promote information about the Victims Fund. Lastly, interview respondents noted that the Fund was promoted through other federal departments and sections, for example the Family Violence Initiative.
In terms of awareness of the Victims Fund among victims and their families, additional awareness-raising vehicles suggested included a "kit" outlining the role of the PCVI and the Victims Fund, as well as brochures for victims and families to be distributed via front-line service providers. Respondents also noted a need to educate victim services providers about the Victims Fund.
Conferences were used as another type of policy instrument by the PCVI to raise public awareness about victim issues. Conferences and symposia organizing, including a symposium on victims of terrorism, and limited attendance by victim services workers to attend conferences, have been funded through the Victims Fund. In addition to this financial support, the PCVI interview respondents indicated that they had attended, assisted in organizing and/or presented at numerous conferences and learning events over the first two years of the FVS.
Three sub-studies were undertaken as part of the 2006 NVCAW, which examined individual events, the Resource Guide and the organizing committee of the NVCAW. Surveys were used for each sub-study as a means to collect information on the event. The results of the sub-studies demonstrated that the overall quality of the Guide was high and that it was useful in terms of raising awareness about victim issues and programs and services for victims. The Guide was found to be potentially useful for planning NVCAW events, although most event planners did not make use of the Guide because they did not have access to it in time or they already knew how to plan an event of this nature. Event planners did, however, indicate the Guide was a valuable resource, not just for the NVCAW, but also as a source of information throughout the year. Suggestions for improvement included making the Guide available earlier prior to NVCAW events and providing additional information such as victim-related services, more tips on planning such as time management, how to better advertise and promote an event, and past examples of events and success stories.
3.2.4. Increased Information Sharing and Materials
Interviewees agreed that the FPTWG on Victims of Crime was attaining its intended objectives and that having a regular meeting of senior officials to discuss victim issues through the FPTWG forum is extremely valuable. It is the only such mechanism for information sharing, problem solving, discussions and feedback for its members on victim issues at a national level. The Working Group's Sub-Committee on Aboriginal Victims of Crime and the special meeting on Criminal Injuries Compensation were noted by a number of FPTWG members as examples of more formal undertakings of problem solving. Some provincial and territorial interviewees also noted the FPTWG as a vehicle for consultation and partnership between jurisdictions.
FPTWG on Victims of Crime interviewees noted the benefits of having a forum to discuss different approaches and perspectives to similar issues and best practices learned in various jurisdictions. It is seen as important to keep abreast of new developments in area of victim issues.
Finally, respondents from both the federal and provincial/territorial governments noted the strength of the feedback loop through the FPTWG when it comes to federal policies. Provincial and territorial members generally felt that their feedback was taken into consideration to inform, improve and develop federal policies. Departmental officials confirmed this role by noting the importance of having the perspectives of the FPTWG on Victims of Crime to inform federal policies. Provincial and territorial members are considered to be the key driving forces in ensuring that new federal policies, initiatives and legislation flow through to the respective front-line service deliverers in each jurisdiction.
FPT interviewees reported that the PCVI's research function is working effectively. Several interviewees commented on the important role that the Department of Justice is playing in building the research body around victim issues where it was previously lacking. Specifically, research was used to inform future policy directions and to monitor policy implementation. Research also continued to provide a solid evidence base from which to identify and discuss options and raise awareness of victim issues and responses to those issues.
Generally, research was disseminated through a variety of internal and external channels including: the FPTWG on Victims of Crime, conferences, the PCVI Website, the Victim Advisory Committee, active distribution by email to stakeholders and relevant departments, JustResearch18, international Directors of Justice Research Committee, the Canadian Centre for Justice Statistics/Statistics Canada's distribution network, and Statistics Canada's "Daily" research release.
Several types of information resources such as fact sheets are available on the PCVI Website. In total, 157,083 documents were accessed from the PCVI site between April 1, 2005 and March 2007 with an average of 6,545 being downloaded per month.
Effectiveness and Usefulness of Information
Victims Fund applicants, FPT officials, and Victims of Crime Advisory Committee members were asked to rate the extent to which the PCVI was effective in distributing information and the usefulness of that information.
Overall, 52% of FPT stakeholders and 46% of Victims Fund applicants found that the PCVI was effective or very effective in distributing information. The PCVI was more effective in distributing information to FPT stakeholders than to Victims Fund applicants in the areas of new criminal legislation, new federal policies related to victims, information taking place in other jurisdictions, opportunities for networking and opportunities for coordination or joint ventures. On the other hand, the PCVI was more effective in distributing information to Victims Fund applicants than FPT stakeholders on the Victims Fund, other funding opportunities, public legal education and information about victim issues and communication products.
Ten per cent of respondents found the PCVI not at all effective in distributing information. Areas where both groups of respondents found that the PCVI was not at all effective in distributing information included information on other funding available for victim issues and information on work taking place in other jurisdictions.
Overall, 56% of respondents found that the information received from the PCVI was useful or very useful19. Information distributed by the PCVI was found to be more useful to FPT stakeholders than Victims Fund applicants in all categories, except information on other funding available and communication products20. PLEI and networking opportunities were found to be the same level of usefulness by both groups of respondents.
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