Patricia Stephenson (Social Democrats)
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I thank the Minister of State for coming to the House to provide me with an update on the implementation of the zero tolerance strategy for domestic, sexual and gender-based violence. I have asked that we have a particular focus in our discussion on housing provision and on the Government's plans to address the acute crisis faced by survivors of domestic violence across the country.

Housing is not a peripheral issue in the context of domestic violence. It is central to safety, recovery and dignity. For too many survivors, housing insecurity is the single greatest barrier to escaping abuse. We cannot continue to expect people, mostly women and children, to choose between homelessness and a violent home. In the 2022-26 strategy, strong commitments were made to build a coherent national infrastructure of support for survivors. However, more than halfway through the strategy's lifetime, implementation is lagging, particularly in the case of housing and refuge provision. While the establishment of Cuan is a very welcome step, it must be matched with action. The strategy’s promise of 400 new refuge spaces by 2026 is crucial but on current progress, we are unlikely to meet that target. We need clear timelines on this. There are about nine counties in Ireland that do not have a women’s refuge.

Are plans in place for all of these remaining counties to have refuges established before the end of the strategy in 2026? Ireland's obligations under the Istanbul Convention on preventing and combating violence against women and domestic violence are explicit. Article 23 requires that sufficient, safe and accessible refuge spaces be available to meet the needs of victims. Article 20 demands access to housing and financial assistance as part of comprehensive support. Compliance with these obligations is not aspirational; it must be real in every local authority area. How is the Minister of State ensuring that every local authority is meeting these obligations?

Refuge provision is only part of the issue because refuges are designed for the short term only. Women fleeing domestic violence need long-term housing solutions. They need to be a priority group for council housing lists. While the housing crisis is affecting many people in this country, it is having a particularly cruel impact on survivors of domestic violence as they try to rebuild their lives. At the heart of any strategy must be care. I do not mean that in a sentimental or paternalist way; I mean it from a structural perspective. The zero tolerance policy is built on a promise to women that they will be listened to yet too often, we hear survivors speak of no space in refuges, of years on housing lists and of being told to be patient, to wait and to survive just a little bit longer. Safe Ireland has warned that without investment and urgency, the gap between reality and promises will continue to widen. Alcohol Action Ireland has pointed out that there is no mention of alcohol in the strategy even though alcohol is one of the most consistent drivers of domestic abuse. The glaring omission of alcohol in the strategy means that one of the most common drivers of domestic violence is not being taken into account from a prevention and recovery angle. How can this be the case?

As the Minister of State knows, coercive control thrives on women who have been bullied and psychologically abused and whose self-esteem is on the floor. We need wraparound supports. They matter so much because they can empower women to pull themselves out of violent situations.They empower women who have fled the most horrendous abuse, often with their children, so that with the correct support they rebuild themselves and their lives. Women need support to get jobs, have their own independent income and psychological care. What provisions are in place to ensure that every woman who flees a violent situation is able to receive this care? Wrap-around supports for women fleeing domestic violence are not a nice little extra to have; they are fundamental for their care and protection.

Will the Minister consider the creation of a distinct housing allocation category for survivors of domestic violence? The current system often places survivors in the general housing queue and fails to reflect the urgency of the situation they are facing.

Will the Minister ensure that alcohol is acknowledged and included as a driver of domestic violence in the next strategy or amend the current strategy to reflect that reality?

Has mandatory training on gender-sensitive, trauma-informed approaches been rolled out for all gardaí, legal professionals and members of the Judiciary? The risk of re-traumatisation is severe and can affect people's long-term recovery when they are going through the judicial process.

Niall Collins (Limerick County, Fianna Fail)
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I thank Senator Stephenson for raising this matter. I am replying on behalf of the Minister, Deputy O’Callaghan. I welcome the opportunity to update the House on the implementation of the zero-tolerance strategy and to reaffirm the Government’s commitment to supporting and protecting victims of domestic, sexual and gender-based violence.

Since January 2024, Cuan has been leading the co-ordination of Government actions under the strategy. A central commitment is to double domestic violence accommodation capacity in Ireland by the end of 2026. Cuan is working closely with domestic violence services, approved housing bodies, local authorities, the Department of housing and the Housing Agency to achieve this. By the end of 2024, 14 of 18 priority locations had identified suitable sites. Delivery schedules were mapped to ensure progress and new capacity had been delivered, including a 12-unit refuge in Wexford.

At the request of the Minister, Deputy O’Callaghan, Cuan undertook a review in early 2025 and worked with services and partners to assess and review progress and identify a series of actions to accelerate delivery. Following that review, completed in spring 2025, and in line with the commitment given by the Minister, the following targets will be delivered by the end of 2026: 52 new family refuge units; 45 new safe homes; and 50 new units under construction.

In 2022, at the start of the zero-tolerance strategy, there were 49 safe homes in place. By the end of 2026, it is envisaged to have 94 safe homes and 193 refuge units completed, bringing total safe accommodation to 287, with 50 further refuge units under construction. As part of this expansion, this week, the Minister had the privilege of opening a new nine-unit refuge in Dublin 4, a facility that will provide safe and secure accommodation for survivors at a critical time in their lives. In June, he launched the final implementation plan for the strategy, which focuses on expanding refuge accommodation and developing a comprehensive national emergency domestic violence accommodation plan.

Earlier this week, the Minister secured a funding increase to almost €80 million under budget 2026 to support Cuan and services working to tackle domestic, sexual and gender-based violence and the implementation of the strategy. This represents an increase of €11.5 million year on year.

My Department is also examining proposals to develop a policy on removal orders to take offenders out of the home in high-risk cases, subject to legal considerations. Through these combined efforts the Minister and our Department are delivering real progress. The clear message is that domestic, sexual and gender-based violence will not be tolerated.

Patricia Stephenson (Social Democrats)
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I am delighted to hear about the progress being made on the strategy for removing offenders from the home. That is a really positive step for women, particularly in situations where there are children. I would love to get an update on that as it goes through the Department.

The Minister of State's response focused mainly on emergency housing. In my contribution I was trying to underscore that this is a systemic issue. The point of a refuge is that it is short term. Women are finding themselves in hotels and refuges with their children. They are only supposed to be in those refuges for a short time. We need a commitment to long-term housing, particularly at a local authority level. I ask the Minister of State to respond to my question about having such women as a priority category on local housing lists. Long-term solutions are needed and these short-term fixes are not substantial enough.

I cannot say I welcome the €11.5 million additional funding for domestic, sexual and gender-based violence given that almost €20 million has been allocated for greyhound racing. That figure is allocated every year and it is almost double what is allocated for domestic, sexual and gender-based violence. For many women across the country, that really underscores how the Government prioritises tackling violence against women and girls. Those figures are quite shocking when they are looked at together.

Niall Collins (Limerick County, Fianna Fail)
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It is important to reflect not only on the commitments made but also on what has been delivered under the zero-tolerance strategy. The promise of safe accommodation is becoming a reality. The new refuge in Wexford and the refuge in Dublin 4 symbolise that progress. The pipeline of new refuge spaces and safe homes will continue to grow, moving us steadily towards our target of doubling capacity by 2026. To support our children and young people, more than €17 million has been allocated to 60 services that provide court accompaniment and related support services to children and adolescents who are witnesses in criminal trials. The Family Courts Act 2024 represents a significant reform creating family divisions at every court level to ensure families face a system that is tailored, compassionate and fair. The Game Changer campaign, led by Ruhama, is using the influence of sport to challenge harmful behaviour and promote respect. In addition, public awareness is being raised through zero-tolerance campaigns to encourage victims and survivors to come forward and seek support. Each of these steps represents progress towards the one clear goal that no one in Ireland should ever live in fear within their own home.

As I mentioned in my earlier contribution, the funding has also increased significantly year on year and that will continue to happen under this Government. I do not accept the Senator's criticism of the funding of the greyhound industry. It is not an either-or. The greyhound industry is an economic driver, particularly in rural areas. People derive a livelihood from it. They support their families and their communities through greyhound racing. It is an industry. It is a sector within our community and within our society just as any other sector, whether it is the horse racing industry, the greyhound industry, the food industry or the farming industry. It is the job of Government to support all different subsets within our society and the greyhound industry is no different. I think it merits support. It is not a case of deciding to support the greyhound industry and not support people who need help in other areas of society. That is the job of Government. We try to support every cause within the community as well as possible.