EXECUTIVE SUMMARY
Standards for batterer intervention programs (BIP) have been implemented
in 30 states, including Illinois in 1994. This evaluation seeks to describe
how these standards have been implemented within domestic violence communities.
While the standards are meant to guide BIP practice, they are also believed
to have a larger effect which ought to be observable in the larger domestic
violence community, which includes the justice system and battered women's
agencies (BWA). In Illinois, standards for BIPs are based on the Illinois
Protocol for Partner Abuse Intervention Programs, which we will refer
to as the Protocol throughout this document.
The evaluation issues studied are: (1) How is the Illinois Protocol
implemented by courts and batterer programs? and (2) What are the effects
of the Protocol on community domestic violence prevention? During the early
phases of the evaluation, we collected survey information from 50 directors
of domestic violence victim agencies, and 60 directors of batterer intervention
programs. With cooperation from the Illinois Department of Human Services
and the Administrative Office of the Illinois Court, we selected 16 Illinois
communities and Cook County for intensive data collection. We surveyed
84 staff and 823 participants in 27 batterer intervention programs. Data
were coded and entered into datasets for statistical analysis. Between
1998 and 2000, we interviewed 146 individuals (28 judges, 11 prosecutors,
14 probation officers, 43 battered women's advocates, and 45 staff from
batterer programs) for 30 to 90 minutes. Interviews were tape recorded
and coded for qualitative analysis.
Key Findings
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Most judges we interviewed were aware of the Illinois Protocol, and in
general supportive of the Protocol. Most are able to name the batterer
programs in their area. Many are even familiar with the approaches utilized
by batterer programs. However, almost all judges believe the Protocol does
more than it actually does. In particular, they often believe it amounts
to an official form of certification.
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Probation officers are the criminal justice lynchpins upon which the effectiveness
of batterer intervention programs hinge. There is a great deal of variation
in the relationships between probation officers and batterer intervention
programs.
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There is a great deal of unevenness between communities in the coordination
of community efforts to prevent domestic violence.
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In general, agencies providing services to battered women in Illinois are
supportive of the Illinois Protocol, as long as the Protocol is enforced,
holds agencies accountable for their practice, and does not place too much
strain (time or lost funding) on BWA's. The advocates we interviewed saw
the Protocol as useful not only for batterer programs, but also for BWAs.
Specifically, the Protocol provided a vehicle for BWAs to interact with
the batterer program and hold them accountable for their actions. The Protocol
also provided advocates with a concrete tool with which to talk to battered
women about what to expect from a batterer program.
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Batterer program staff value the Illinois Protocol; in particular they
appreciate the Protocol's role as a best practice document with a relatively
high standard, and the credibility afforded Protocol-approved agencies.
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Over the past two years, the number of batterer programs has increased
by 50 percent and client load is up 64 percent. Staffing, however, has
increased 17 percent, suggesting a potential erosion of accountability
if staffing does not keep pace with caseload.
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According to program participants, most of the time in Illinois batterer
groups is spent discussing skill building in anger management, gender role
issues, and issues of power and control. This suggests that, overall, within
the limits of the data, batterers programs in Illinois comply with the
Illinois Protocol.
Key Recommendations
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Prosecutor offices and Probation departments should be targets of a domestic
violence education campaign, including the considerations of the Illinois
Protocol as it pertains to their respective staff.
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The role of probation in providing batterer intervention programs in addition
to case management requires careful study. DHS should consider whether
amendments are needed to the Illinois Protocol covering probation-based
batterer programs. Probation departments should be approved under the Illinois
Protocol before they offer batterer programs.
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The connection between batterer programs and probation departments should
be a priority. Batter programs should formally demonstrate to DHS their
linkage to the local probation department.
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DHS should support evaluation research tracking the path of batterers through
the justice systems in select communities to determine what communities
do when batterers do not comply with referral to BIPs, do not complete
the BIP, or re-offend.
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There should be adequate support of BWA's for their expected role as collaborator.
This role takes time, and the time of BWA should be reimbursed in some
fashion, either by funds from the batterer program, local funds, or state
funds.
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Many staff of battered women's agencies lack adequate information about
batterer programs and the Illinois Protocol. An educational program toward
this goal is recommended.
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The DHS should assist local BWAs who wish to develop specific criteria
for collaborating with batterer programs.
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There is considerable variability among BIPs in both evaluability and accountability.
We recommend BIPs be placed on individual accountability plans from annual
review to annual review, similar to IEPs in schools, or treatment plans
in health care.
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The conflict between accountability and the free marketing of batterer
programs may place battered women at risk. Consistent with national trends,
we recommend that Illinois raise its minimum time for batterer programs
to 26 weeks or six months.
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DHS should study the conceptual and administrative feasibility of a continuing
education requirement for all staff of batterer programs.