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April 3, 2019
Family Violence Prevention and Services Act (FVPSA)
History of FVPSA
Overview of FVPSA
Throughout much of the 20th century, domestic violence
FVPSA focuses on providing temporary shelter and
remained a hidden problem. Survivors (or victims) were
services for survivors, as well as supporting children
hesitant to seek help, primarily because of fear of retaliation
exposed to domestic and teen dating violence. The law
by their partners and concerns about leaving their
currently authorizes three major activities—the National
communities. In the 1960s and 1970s, shelters and services
Domestic Violence Hotline (hotline); domestic violence
for survivors became more widely available. In 1984, the
shelters, services, and related program support; and the
Department of Justice (DOJ) issued a report that examined
Domestic Violence Prevention Enhancement and
the scope and impact of domestic violence in the United
Leadership Through Alliances (DELTA) program. The U.S.
States, and recommended improvements in law
Department of Health and Human Services’ (HHS’) Family
enforcement and community responses to offenses that
and Youth Services Bureau (FYSB) administers funding for
were previously considered “family matters.” As a result of
the hotline and domestic violence shelters and services. The
efforts by advocates and DOJ, Congress held a series of
CDC, also within HHS, administers DELTA. FVPSA
hearings on domestic violence. In response, the Family
authorized funding for these activities through FY2015.
Violence Prevention and Services Act was enacted as Title
Funds have subsequently been appropriated through
III of the Child Abuse Amendments of 1984 (P.L. 98-457).
FY2019. Table 1 shows an increase in funding over time.
FVPSA has twice been amended by the Violence Against
Table 1.FVPSA Actual Funding, FY2015-FY2019
Women Act (VAWA), first enacted in 1994. FVPSA and
Dollars in millions
VAWA are the primary vehicles for federal support to
prevent and respond to domestic violence; however,
FY15
FY16
FY17
FY18
FY19
FVPSA is more focused on prevention and services for
Hotline
$4.5
$8.3
$8.2
$9.3
$10.3
survivors, while VAWA’s unique contributions are more
focused on law enforcement and legal responses.
Shelter &
$135.0
$150.0
$150.5
$158.4
$164.5
Scope of the Issue
Services
FVPSA primarily addresses domestic violence and dating
DELTA
$5.4
$5.5
$5.5
$5.5
$5.5
violence. Both can include acts of physical, psychological,
and sexual violence as well as stalking. Domestic violence,
Total
$144.9
$163.8
$164.2
$173.1
$180.3
sometimes referred to as family violence, involves current
Source: CRS, based on correspondence with HHS, November 2018.
or former spouses, individuals who share children in
Note: Due to rounding, some numbers do not add to the total.
common, cohabiting partners, and other intimate partners.
National Domestic Violence Hotline
Dating violence occurs between individuals who have a
romantic relationship, including teenagers. The research
Since 1996, HHS has competitively awarded a cooperative
literature does not indicate a primary reason why domestic
agreement to one organization, the National Council on
and dating violence are perpetrated, in part because of the
Family Violence in Texas, to operate the National Domestic
difficulty in measuring social conditions that can influence
Violence Hotline (National Hotline). The agreement was
such violence. It does, however, identify two underlying
most recently awarded for a five-year period that extends
factors: the unequal position of women and the
through the end of FY2020. FVPSA specifies that the
normalization of violence, both in society and in some
hotline provide information and assistance to adult and
relationships.
youth victims of domestic violence, family and household
members of victims, and others affected by victimization.
Estimating the number of individuals involved in intimate
This includes support concerning domestic violence, dating
partner violence is complicated by varying definitions of
violence, children exposed to domestic violence,
the term and methodologies for collecting data. A study by
intervention programs for abusive partners, and related
the Centers for Disease Control and Prevention (CDC), the
topics. As required under FVPSA, the National Hotline
federal government’s lead public health agency, examined
carries out multiple activities. It employs, trains, and
the prevalence of intimate partner violence in 2015. Over
supervises personnel to answer incoming calls; provides
one-third of women and men in America reported that they
counseling and referral services; and directly connects
experienced sexual violence, physical violence, and/or
callers to service providers in local communities. In
stalking by an intimate partner in their lifetime. However,
FY2018, the National Hotline received more than 23,000
women were more likely to experience related impacts,
calls each month and responded to 74% of all calls. HHS
such as having injuries and a need for victim services.
reported that some calls were missed due to increased
media coverage of domestic violence, increased Spanish
chat services, and forwarding of calls from local domestic
violence hotlines due to severe weather. It also had an
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Family Violence Prevention and Services Act (FVPSA)
average of nearly 4,000 online chats on a monthly basis.
counseling and support groups, and services for children).
The hotline maintains a database of domestic violence
Subgrantees that receive funding must provide a nonfederal
service providers throughout the United States, including
match—of not less than $1 for every $5 of federal
information on the availability of shelter and services.
funding—directly from the state or through donations from
Further, it provides assistance to meet the needs of certain
public or private entities. States have two years to spend
populations, including individuals with disabilities and
funds. States and subgrantees may not deny individuals
underserved groups. Since 2007, the hotline has operated
from participating in FVPSA-funded services on the basis
loveisrespect, the National Dating Abuse Hotline for youth
of disability, sex, race, color, national origin, or religion
victims of dating violence. In FY2018, the loveisrespect
(this applies generally to FPVSA). States and subgrantees
hotline responded to nearly 2,400 calls and nearly 4,000
may not impose income eligibility requirements on
chats per month. The National Hotline has also collaborated
individuals participating in these programs. Generally, the
with the National Indigenous Women’s Resource Center, a
requirements that apply to states also apply to tribes.
nonprofit organization, to develop and operate the
State Domestic Violence Coalitions
StrongHearts Native Helpline for Native American
State domestic violence coalitions are statewide
survivors of domestic abuse.
nongovernmental, nonprofit domestic violence
Shelter, Services, and Program Support
organizations whose memberships are made up of domestic
Appropriations for shelter, support services, and program
violence service providers in the state. Each state has one
support provide funding for multiple activities: grants for
SDVC, which is designated by HHS. Funding is divided
states and territories, grants to Indian tribes, state domestic
evenly between the 56 of them. SDVCs must use FVPSA
violence coalitions (SDVCs), training and technical
funding for specific activities, such as working with local
assistance centers, specialized services for abused parents
programs to respond to domestic violence, providing
and their children, and administrative support provided by
training and technical assistance, and planning and
HHS. Figure 1 shows allocations for FY2018.
monitoring the distribution of subgrants within states.
Figure 1. FY2018 Allocations for Shelter, Services,
Training and Technical Assistance Centers
and Support (Totaling $158.4 million)
HHS administers grants for 14 training and technical
assistance centers. The purpose of these centers is to
provide information, training, and technical assistance on
domestic violence topics. This support is provided by
nonprofit organizations and other entities to survivors and
other stakeholders. The National Resource Center on
Domestic Violence and the National Indian Resource
Center Addressing Domestic Violence and Safety for
Indian Women are designated as national resource centers,
meaning they have a broader scope and more funding.
Other centers focus on selected populations (e.g., Latino
communities, Alaska Native communities), specialized
Source: CRS, based on correspondence with HHS, November 2018.
issues (e.g., mental health and trauma), and other topics.
Services for Children
Grants to States, Territories, and Tribes
If annual appropriations for shelter and services exceed
Of the appropriations for shelter and services, no less than
$130 million, HHS must reserve a quarter of the funds that
70% must be awarded to states and territories and no less
exceed this amount for services to children exposed to
than 10% must be awarded to Indian tribes. These funds are
domestic violence. This requirement was triggered in
to be used to establish, maintain, and expand programs to
FY2010 and each of FY2014-FY2019. In recent years,
prevent and respond to domestic violence. Of the funding
HHS has directed the reserved funds to SDVCs and other
for states and territories, each territory (GU, AS, USVI,
entities to address trauma experienced by children exposed
CNMI) receives no less than one-eighth of 1% of the
to domestic violence, support enhanced relationships
appropriation, or, in combination, about one-half of 1% of
among children and their parents, and improve community
the total amount appropriated. Of the remaining funds,
responses to affected families.
states (including DC and PR) receive an allotment of
$600,000 and additional funding based on their relative
Domestic Violence Prevention (DELTA)
share of the U.S. population.
Since 1996, CDC has awarded DELTA funding to SDVCs
to coordinate local community projects to prevent domestic
States and territories (states) may use up to 5% of funding
violence. In total, 34 states have received funding under
for administrative costs. Remaining funds are dedicated to
various iterations of the program. Currently, 10 SDVCs
subgrants to eligible entities—local public agencies or non-
receive DELTA funds, and are implementing and
profit private organizations—for community-based
evaluating programs or policy efforts under three strategies
programs that meet the goals of the grant. No less than 70%
to address domestic violence prevention: (1) engaging
of subgrant funding is to be used to provide shelter and
influential adults and peers, including men and boys, as
related expenses, including the physical space in which
allies in prevention; (2) creating protective environments,
survivors reside and the expenses of running shelter
including in schools and workplaces; and (3) strengthening
facilities. No less than 25% of subgrant funding is to be
economic supports for families.
used for supportive services and prevention services (e.g.,
assisting in the development of safety plans, providing
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Family Violence Prevention and Services Act (FVPSA)
IF11170
Adrienne L. Fernandes-Alcantara, Specialist in Social
Policy
Disclaimer
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