Speech by Minister O'Callaghan at the Domestic, Sexual and Gender Based Violence Forum in Dublin.

We have a full agenda today with a number of very interesting presentations which I’m sure you’re looking forward to.

When we last met in November, I updated you on recent developments in the Government’s response to combat domestic, sexual and gender-based violence, and about ensuring that the commitments I have made both at this Forum and in other arenas are felt in the lives of victims and survivors.

Before I give you some further updates on progress, I want to take a moment to acknowledge the importance of this forum.

I think what is particularly important about this space is that it brings together people with very different roles, but a shared purpose.

And from my perspective, it provides a very real – and very helpful - insight into the day-to-day work happening across the system both in relation to direct service delivery, and in relation to research, policy and advocacy.

That work is not always visible, but it is essential. And it is making a difference.

I want to thank you for the continued commitment, professionalism and care you bring to that work every day, and also for the insights and support you bring to this forum.

This is vital in helping us to strengthen our collective efforts to support victims and survivors of domestic, sexual and gender-based violence.

Legislative updates

I’m glad to report that there has been steady progress in respect of the legislative reforms that I outlined when we met in November.

That work is focused on strengthening the legal framework in a way that is both practical and responsive, ensuring that the law supports victims and survivors, while also operating effectively within the justice system.

In that context, under the Criminal Law and Civil Law (Miscellaneous Provisions) Bill 2026, I have secured Government approval to bring forward further amendments in relation to the disclosure of counselling notes.

This is an important development that builds on the broader objectives that I outlined previously.

The amendments I propose will introduce a presumption of non-disclosure in respect of counselling notes.

This means the default position will be that counselling notes are not to be disclosed, save for the very small number of cases where disclosure is ordered by a judge and warranted in the interest of justice.

This creates a form of statutory privilege whereby counselling notes are not disclosable unless there is a risk of an unfair trial.

I also secured Government approval for amendments to ensure that the same protection regime is applied to other victims’ records containing sensitive personal data, such as medical records, child protection records and other such documents.

These are very important developments that I know many of you have been campaigning for.

I have listened and I agree that we need to do all that we can to limit disclosure of these records, while being careful that we do not infringe on the rights of the accused which could risk jeopardising a trial.

Separately, as you’re aware, Government approval has been secured for the drafting of the Sexual Offences, Domestic Violence and International Instruments Bill 2025, which will establish a publicly accessible Domestic Violence Register of Judgements to be published by the Courts Service.

This new law, which some call ‘Jennie’s Law’ after Jennifer Poole, will allow those convicted of domestic violence against a partner or former partner, to be included on this public Register of Judgments.

The Oireachtas Justice Committee carried out pre-legislative scrutiny of the General Scheme in January and the recommendations of the Committee will be carefully considered once received by my Department.

But, as I said in November, and it remains the case, legislation on its own is not enough.

2025 Progress Report

That is why I am particularly pleased to launch today the Progress Report on implementation of the Zero Tolerance strategy in 2025.

The Report highlights developments across key priority areas, including improving access to justice, advancing the National Emergency Domestic Violence Accommodation Plan, continued progress in advancing the Consent Ed project, and progressing the legislative reforms for domestic, sexual and gender-based violence that I’ve mentioned.

This is the third progress report developed by Cuan, but the first to cover a full year.

Following significant work by Cuan, what we now have is a more developed, more robust monitoring framework, one that gives me, and my colleagues at the Cabinet Committee on Justice, Migration and Social Affairs - which provides oversight of Zero Tolerance implementation - the depth of information and visibility we need to properly assess delivery and keep it on track.

That matters, because without that level of oversight, we cannot deliver at the pace or scale required across the 22 Government partners responsible for implementation.

It is heartening to see the progress made across the four pillars of the Istanbul Convention - Prevention, Protection, Prosecution and Policy Coordination – and the many strands and sectors representing the cross-Government response under these pillars.

Delivery of the Strategy’s objectives of course requires sustained effort over time - and significant work remains to ensure all victim-survivors are protected, supported, and able to access justice.

But I am satisfied that this report demonstrates the measurable progress achieved last year – and is being felt in the lives of victims and survivors.

Dr Stephanie O’Keefe of Cuan will go into more detail on the report shortly.

Children and young people

One area of the report I did want to touch on briefly – and, indeed, one of the defining features of the Zero Tolerance Strategy - is the recognition of children and young people as victims and survivors.

This is a hugely significant change, centring the specific needs of children and young people, who in the past had primarily been identified as witnesses of abuse.

This recognition ensures that children identified as victims and survivors can access the wraparound support services they need and all communication will be child-friendly and age-appropriate.

Essentially, this change ensures that their voices are heard.

Approximately one third of the actions in the current implementation plan which I launched last year are focused specifically on children and young people.

And we are seeing real progress.

My Department, supported by Cuan and the Department of Education and Youth, is leading work to introduce Operation Encompass into the Irish system, to ensure that where a child is affected by domestic violence, there is a timely, coordinated and child-centred response, including at their school.

Just last week, I convened a cross-border learning event in Drogheda which brought together An Garda Síochána, Tusla, school principals and education partners, and Government Departments, with their counterparts from Northern Ireland to learn how Operation Encompass was introduced in the North.

That engagement was practical, energising and will directly inform how we proceed.

The next step is clear: to develop the framework required to support a pilot programme in Drogheda, while progressing the necessary enabling legislation.

Separately, the Department of Children, Disability and Equality is also making significant progress on the expansion of the Barnahus model.

While we all agree that we need to work closely and proactively to prevent child sexual abuse, this represents one of the most important developments in how we respond to child victims of sexual violence.

Barnahus brings services together in a coordinated way, ensuring that children receive support in a manner that is timely, effective and appropriate.

I want to acknowledge the leadership of the Department of Children, Disability and Equality in advancing this work.

I look forward to hearing Kevin McCarthy, their Secretary General, speak shortly about the National Strategy for Women and Girls and its response to DSGBV.

Another key area of focus in our own Strategy has been strengthening the voice of the child.

Through the Voice of the Child Working Group which is chaired by my Department, we are advancing concrete measures to ensure meaningful participation, backed by both constitutional provisions and our obligations under the UN Convention on the Rights of the Child to ensure that children’s voices are heard and considered in private and family law proceedings, including in situations where they are impacted by domestic violence and coercive control.

That includes the establishment of a Children’s Court Advocate pilot.

Following a competitive tender process late last year, Childhood Matters has been identified as the implementing partner.

The pilot will commence in Clonmel and Waterford this summer, beginning with District Court referrals and expanding to Circuit Court referrals in the second year of the programme.

The pilot aims to ensure that children involved in family law proceedings are appointed an advocate, so that their views are considered by the judge, particularly in cases relating to custody, guardianship and access.

Safe accommodation

Finally, on the progress report, I want to mention accommodation.

Access to safe, appropriate accommodation is fundamental. Without it, many victims simply cannot leave unsafe situations.

That is why this remains a priority for me and for Government.

Last year, the number of domestic violence refuge units increased by 13, four in Louth and nine in Dublin, bringing the total number to 172.

A further nine units have been developed in Dublin 22 and will be operational in a matter of weeks.

A 12-unit refuge located in Dun Laoghaire/Rathdown Council area is scheduled to be completed and become operational later this year. This will bring the total number of refuge spaces to 193.

In addition, Cuan is working towards having a minimum of 50 new refuge units under construction across multiple sites nationally this year.

Last year, the number of safe homes increased by eight which increased total safe home capacity to 60. Cuan is working to increase that capacity to 94 this year.

This means by the end of 2026, we aim to increase the number of safe accommodation spaces, which includes refuges and safe homes, to 287.

Through Budget 2026, we are continuing to invest significantly in expanding capacity and strengthening services across the country.

Conclusion

While there is real progress, I do not underestimate the scale of what remains to be done.

This report is clear on that. And that is precisely its value.

It allows us to be honest about where we are and focused on where we need to go.

As we move into 2026, the final phase of the Strategy, delivery must be our absolute priority.

And that will require continued urgency, continued oversight, and continued collaboration.

Because this is not the responsibility of any one Department or organisation. It is a shared effort.

All of us in this room have our part to play.

Those of us working in Government have a particular responsibility to ensure that the views and needs of victim and survivors, as expressed by them, will guide our work.

I have directed that work will shortly begin to develop the Fourth National Strategy on DSGBV, which will both maintain and build upon key achievements, actions, priorities, and learnings from the Zero Tolerance Strategy.

The bedrock of this process will be consultation and co-design with stakeholders in the sector, many of whom are represented here today, so that your practical experiences, insights and expertise inform every aspect of the Strategy.

I look forward to engaging with you as we move forward with this task.

Implementation of the strategy will include establishment of a framework for formal structures of survivor engagement.

I am pleased that Corrinne Hasson, Executive Director of the National Women's Council, will update you later today on research into how these structures can be most effective.

As this work proceeds, I also intend to use Ireland’s Presidency of the Council of the European Union which will commence in July, to bring renewed focus on the fight against DSGBV.

Member States, including Ireland, are busy transposing the new EU Directive on combating violence against women and domestic violence in advance of next year’s deadline.

This is a huge body of work that will standardise measures across member states in respect of criminal offences, policy development, data collection and coordination.

Ireland is ahead of most countries in respect of the key obligations that the Directive imposes.

However, new and emerging threats that cross national boundaries, such as the rise of technology-facilitated forms of abuse and the pervasiveness of violent and extreme pornography are evolving at such pace that they require a coordinated response throughout the EU.

I intend to use the opportunity of Ireland’s Presidency to seek consensus across Member States and the European Commission on the need for concerted, collective and evidence-based response to these threats.

I will provide further updates on this engagement, and in respect of development of the next National Strategy when we next meet.

In the meantime, I want to offer my appreciation once again for all of the work that you do on behalf of victims and survivors through delivery of essential and specialist services, research, policy and advocacy.

It is only through shared efforts that we will achieve what we have set out to do, a society where there is truly zero tolerance for domestic, sexual and gender-based violence.

Thank you.