Saatja: "Info - SOM" <
[email protected]>
Saaja: "info - MKM" <
[email protected]>
Teema: FW: UNHCR uuringu raport ja kutse veebiseminarile (12. juuni, kell 14:00)
Kuupäev: 2025-06-05 11:48
Tere,
Edastame info!
Lugupidamisega
Dokumendihaldus SOM
From: Mariia Khrapunenko <
[email protected]>
Sent: Tuesday, June 3, 2025 5:40 PM
To: Mariia Khrapunenko <
[email protected]>; Olga Sõtnik <
[email protected]>
Subject: UNHCR uuringu raport ja kutse veebiseminarile (12. juuni, kell
14:00)
Tähelepanu! Tegemist on välisvõrgust saabunud kirjaga.
Tundmatu saatja korral palume linke ja faile mitte avada.
Tere!
Täname kõiki, kes on juba registreerunud 12. juunil toimuvale
veebiseminarile, kus tutvustatakse uuringut „Soolist vägivalda kogenud
sunniviisiliselt ümberasunud ja kodakondsuseta inimeste olemasolevate
suunamisteede hindamine"(Assessment of the existing referral pathways for
forcibly displaced and stateless people who have experienced gender-based
violence (GBV) in Estonia).
Neile, kes ei ole veel registreerunud, tuletame meelde, et seminar toimub:
📅 12. juunil 2025
⏰ Kell 14.00–15.00
🌐 Veebis (eesti keeles)
🔗 Registreerimislink: <https://forms.office.com/e/gYMSy4DS7w>
https://forms.office.com/e/gYMSy4DS7w
Seminari eesmärk on tutvustada uuringu tulemusi ning arutada ja täpsustada
koostatud soovitusi. Osalemislink saadetakse pärast registreerimist.
📄 Uuringuaruanne on nüüd saadaval ja saadame selle Teile käesoleva kirja
manuses. Palume Teil enne seminari võimalusel sisuga tutvuda.
NB! Aruanne on mõeldud ainult taustamaterjaliks osalejatele ega ole
avalikuks jagamiseks.
Palume hoiduda selle dokumendi edastamisest väljaspool seminariga seotud
huvirühmi.
Seminari päevakava:
14:00 – Tervitussõnad (Olga Sõtnik, UNHCR)
14:05 – Uuringu tulemuste esitlus (prof Lehte Roots, Tallinna Ülikool)
14:35 – Arutelu ja osalejate tagasiside
14:55 – Kokkuvõte
Täname veel kord kõiki, kes uuringusse panustasid või seminaril osalevad!
Teie kogemused ja tagasiside aitavad tagada, et tulemused oleksid
asjakohased ja praktiliselt rakendatavad.
Parimate soovidega
UNHCR Eesti esindus
Study on the assessment of the
existing referral pathways for forcibly
displaced and stateless people who
have experienced gender-based
violence (GBV), including sexual
exploitation and abuse (SEA) in
Estonia
FINAL REPORT
May 2025
The study is conducted by Prof. Lehte Roots and Melita Sogomonjan, PhD
The current study is commissioned by
the UNHCR Representation for the Nordic and Baltic Countries
Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
who have experienced GBV, including SEA in Estonia
Mariia Khrapunenko
Senior Field Associate
UNHCR Estonia
Email:
[email protected]
Phone: +372 5631 1239
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
who have experienced GBV, including SEA in Estonia
Table of Content
Abbreviations and definitions ..................................................................................... 4
Executive summary .................................................................................................... 6
1. Introduction .......................................................................................................... 8
2. An overview of a situation with GBV and SEA in Estonia .................................. 10
3. Methodology of the study ................................................................................... 16
3.1 Phases of the Research and Research Questions .................................... 16
4. Legal and policy measures for the protection of victims of GBV and SEA in
Estonia ..................................................................................................................... 21
4.1 An overview of existing legislation ............................................................. 21
4.2 Legal definition of a victim .......................................................................... 22
4.3 Victims in criminal procedures ................................................................... 23
4.4 Right to linguistic assistance, interpretation and translation ....................... 23
4.5 Assessment of individual protection needs ................................................ 24
4.6 Right to be informed ................................................................................... 25
4.7 Rights to legal representation .................................................................... 25
4.8 Right to access victim support services ..................................................... 25
5. An overview of existing referral pathways and service providers ....................... 27
5.1 Available support services provided by the service providers .................... 27
6. Results ............................................................................................................... 33
6.1 Interviews with victim support service providers and stakeholders ............ 33
6.2 Interviews with individuals holding temporary status in Estonia ................. 39
7. Conclusion ......................................................................................................... 42
8. Recommendations ............................................................................................. 47
References ............................................................................................................... 50
Annex I - List of organizations and people contacted ............................................... 55
Annex II – TAI permission ........................................................................................ 57
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
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Abbreviations and definitions
Gender-Based Gender-based violence (GBV) is ‘an umbrella term for any
Violence (GBV) harmful act that is perpetrated against a person’s will and that is
based on socially ascribed (i.e. gender) differences between
males and females. It includes acts that inflict physical, sexual or
mental harm or suffering, threats of such acts, coercion, and other
deprivations of liberty. These acts can occur in public or in
private’.1
ERC Estonian Refugee Council
Health Care As defined in the Healthcare Services Organization Act Article 2
Service (HCS) (1), HCS is the activity of a health worker to prevent, diagnose
and treat illness, injury or poisoning with the aim of alleviating a
person's ailments, preventing the deterioration of his health or
exacerbation of the disease, and restoring health.
Sexual The abuse or attempted abuse (including threatened physical
Exploitation and intrusion of a sexual nature, whether by force or under unequal or
Abuse (SEA) coercive conditions) on an individual's vulnerability, power
imbalance, or trust, to obtain sexual favours.
Applicant for Act on Granting International Protection to Aliens1 § 3. Applicant
international for international protection and application for international
protection status protection (1) An applicant for international protection (hereinafter
also applicant) is an alien who has submitted an application for
international protection (hereinafter also application) in respect to
which final decision has not been made.
PBGB Police and Border Guard Board
Refugee The 1951 Convention relating to the Status of Refugees (the 1951
Convention), at Article 1A(2), defines a refugee as any person
who ‘…owing to a well-founded fear of being persecuted for
reasons of race, religion, nationality, membership of particular
social group or political opinion, is outside the country of [their]
nationality and is unable or, owing to such fear, is unwilling to
avail [themself] of the protection of that country; or who, not
having a nationality and being outside the country of [their] former
habitual residence is unable or, owing to such fear, is unwilling to
return to it’.
______________________
1
IASC GBV Guidelines for Integrating GBV Interventions in Humanitarian Action, 2015, Part 1, https://gbvguidelines.org; and
UNHCR master glossary of terms | UNHCR.
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Subsidiary A form of international protection granted in some countries to
protection persons, who do not meet the Convention definition of a refugee
but who face a real risk of serious harm in their country of origin
or former habitual residence. This includes the death penalty or
execution, torture or inhuman or degrading treatment, or a serious
and individual threat to their life or person due to indiscriminate
violence in situations of armed conflict.
SIB Social Insurance Board
UNHCR United Nations High Commissioner for Refugees, the UN
Refugee Agency
Victim Support As defined in the Victim Support Act Article 15 (2), VSS are:
Services (VSS) 1. basic victim support service;
2. psychosocial support in the event of crisis;
3. women's support centre service
4. sexual violence crisis support;
5. service for victims in human trafficking;
6. restorative justice services;
7. support for abandonment of violence;
8. mental health assistance in support of recovery from trauma.
Victim/ Survivor2 As defined in the Code of Criminal Procedure, Article 37 (1),
victim is an individual, or a legal person, whose legally protected
interests have suffered direct harm because of a criminal offence
that targeted them, or as a result of an unlawful act committed by
a person incapable of forming the corresponding mens rea. In a
situation where an attempt is made to commit a criminal offence,
a person is a victim also if, instead of the protected interest that
was targeted, harm is dealt to an interest that is subsumed by that
interest. The State or another public authority is a victim only if
the harm dealt to its legally protected interest gives rise to a
pecuniary claim which can be pursued in criminal proceedings. A
person is a victim also in a situation in which a criminal offence or
an unlawful act committed by a person incapable of forming the
corresponding mens rea caused the death of a person close to
them and they have suffered harm as a result of the death.
According to legal definition provided by Victim Support Act
Article 4 (2), a victim is a person who is harmed or dies because
of a crime, violence or event of crisis.
VSA Victim Support Act3
______________________
2
In this study, victims/ survivors are considered forcibly displaced and stateless individuals who have experienced gender-
based violence (GBV) including sexual exploitation and assault (SEA).
3
Estonia, Victim Support Act, 14.12.2022, https://www.riigiteataja.ee/en/eli/ee/Riigikogu/act/503042023004/consolide.
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
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Executive summary
This report aims to assess the existing referral pathways for forcibly displaced4 and
stateless people who have experienced gender-based violence (GBV), including
sexual exploitation and abuse (SEA) in Estonia. For the sake of clarity and readability,
this report refers to the main target group as individuals who have experienced GBV,
including SEA.
The study was conducted from October 2024 to January 2025 and reflects the results
of the desk research, interviews conducted and assessment of current legislation. The
results of the study have shown that referral pathways for forcibly displaced and
stateless survivors5 of GBV are in place, and that support services are generally
accessible to refugees and individuals with temporary or subsidiary protection. At the
same time, the findings point to some challenges in how these pathways function in
practice. Limited coordination between institutions, gaps in professional capacity, and
the partial involvement of key actors can affect how support is delivered and accessed.
Although health institutions provide GBV-related services, they typically operate
independently from other institutions, resulting in fragmented support rather than as a
more cohesive system. These issues may reduce the overall effectiveness of the
referral process.
Individuals who have experienced GBV, including SEA, can seek support from the
Police and Border Guard Board (PBGB), Social Insurance Board (SIB), medical
professionals, and NGOs. These entities forward the cases to the victim support
service (VSS), managed by Estonia’s SIB. Information about contacting the police is
provided upon arrival in Estonia. Nevertheless, the background research and
interviews revealed variations in awareness of these services, availability of
information, and accessibility - particularly regarding the language in which these
services are offered. Furthermore, Estonia is using MARAC (Multi-Agency Risk
Assessment Conference) model as a framework for action to support the survivors of
GBV and SEA. MARAC involves risk identification and is using DASH (Domestic
Abuse, Stalking and Honour Based Violence) risk assessment tools and networking
to develop and implement an intervention plan. The members of the MARAC network
develop and implement an intervention plan, they are involved in case management
network meetings and share information and evaluation of the results.
In this study, representatives of 15 organizations were interviewed to get more insight
into practices involving forcibly displaced and stateless people, who are survivors of
______________________
4
In this report “forcibly displaced people” are defined according to the UNHCR terminology – these are people, forced to flee
their countries due to conflict, violence, persecution, or human rights violations. This is not a legal term and used as an
abbreviated, generic term to designates all people falling, or considered likely to fall, under UNHCR mandate, such as refugees,
asylum-seekers, and those under temporary protection.
5 In this report, the terms victim of GBV and survivor of GBV are used interchangeably. While UNHCR and other international
organisations favour the term survivor, reflecting a rights-based and empowering approach, the Estonian national context
predominantly employs the term victim in legal, policy, and service delivery frameworks. To respect both contexts and ensure
clarity, both terms are used with the same intended meaning.
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GBV and SEA. The study revealed that there is no discrimination based on nationality
or legal status, and every person can access support services for help. However,
providing and obtaining information in languages other than Estonian, English, or
Russian presents challenges, as translation services are required and can be limited
for less common languages in Estonia. Between October 2024 and January 2025,
interviews were also conducted with persons holding temporary protection status to
gather information about their experiences, assess the quality of services received,
and evaluate their awareness of available support services.
The main barriers to accessing services include language difficulties, cultural
differences, and survivors’ self-perception. Recognizing oneself as a survivor of
violence and seeking help from the police can be challenging. While there is general
awareness about GBV, the sensitivity of these issues, combined with cultural factors,
likely contributes to underreporting among forcibly displaced individuals. Minor
limitations of the VSS are presented in the report, along with suggestions how to
improve the services.
The visual overview of the referral pathways to the needed services of the forcibly
displaced survivors of GBV (including SEA) are also presented schematically below.
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
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1. Introduction
This study aims to assess the effectiveness of the existing referral pathways for
forcibly displaced (refugees, asylum-seekers) and stateless people who have
experienced GBV and SEA6 in Estonia and provide recommendations for improving
service accessibility. The study focuses on the adult (18+ years of age) forcibly
displaced and stateless people.
Effectiveness in this study means the accessibility and availability of the services
to forcibly displaced and stateless persons.
Gender-based violence, as defined by the Council of Europe, is any act of violence
based on gender identity. It broadly includes harm inflicted on individuals or groups
due to their actual or perceived sex, gender, sexual orientation, or gender identity.7
GBV includes mental, physical, and sexual violence, as well as threats, coercion, and
manipulation, often seen in intimate partner violence, child marriage, female genital
mutilation, and "honour crimes".8
UNHCR’s 2020 Policy on Gender-Based Violence defines GBV as harmful acts based
on socially ascribed gender differences, including physical, sexual, or mental harm,
threats, and coercion, occurring publicly or privately. It highlights GBV’s roots in
patriarchal power dynamics and gender discrimination, targeting women, girls, and
individuals defying gender norms. Previously referred to as "sexual and gender-based
violence" (SGBV), UNHCR now uses "gender-based violence" (GBV) to emphasize
its systemic nature.9
Sexual exploitation refers to the abuse or attempted abuse of an individual's
vulnerability, power imbalance, or trust, to obtain sexual favours.10 This may involve
offering money or other forms of social, economic, or political advantages, and
includes trafficking and prostitution.11
Sexual abuse means the actual or threatened physical intrusion of a sexual nature,
whether by force or under unequal or coercive conditions such as sexual slavery,
pornography, child abuse and sexual assault.12
The prevalence of GBV among females tends to increase during forced
______________________
6
Later throughout the report, for better readability only the term GBV is used, but by it the authors mean GBV, including SEA.
7
Council of Europe, What is gender-based violence?, https://www.coe.int/en/web/gender-matters/what-is-gender-based-
violence.
8
UNHCR, Gender-based violence, https://www.unhcr.org/what-we-do/protect-human-rights/protection/gender-based-violence.
9
UNHCR, UNHCR master glossary of terms, https://www.unhcr.org/glossary, see also UNHCR Policy on the Prevention of,
Risk Mitigation and Response to GBV, 02 October 2020, https://www.unhcr.org/media/unhcr-policy-prevention-risk-mitigation-
and-response-gender-based-violence-2020.
10
UNHCR, What is sexual exploitation, abuse and harassment?, https://www.unhcr.org/asia/what-we-do/how-we-work/tackling-
sexual-exploitation-abuse-and-harassment/what-sexual-exploitation.
11
Ibid.
12
Ibid.
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
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displacements.13 Although women face a higher risk of GBV, there is limited data on
the overall number of people affected by these forms of violence in the EU.14
Forcibly displaced individuals as well as stateless people also face higher risks of GBV
in a homogenic relationship.15 This research area has been overlooked, largely due to
reluctance to report incidents. The most common reasons among forcibly displaced
and stateless individuals who have experienced GBV that hinder them from reporting
such cases are the forcible displacement background and economic situation;
personal beliefs and fears (e.g., fear to be isolated of family and/or community, fear of
not being believed, fear of discrimination, etc.); little knowledge of rights, support
services, and language skills; limited access to support services and lack of legal
protection, as well as mistrust towards state authorities.16
The large-scale arrival of refugees from the Middle East, Ukraine, and other regions
has placed governments under pressure to meet the needs of forcibly displaced
people. Nordic countries have established social insurance systems, protective legal
measures, and support services for forcibly displaced and stateless individuals who
have experienced GBV. Estonia has adopted some practices from Nordic countries
when developing similar systems, but still lacks sufficient experience in working
effectively with individuals who have diverse cultural backgrounds, experiences of
forced displacement, and varying language skills.
Therefore, the current study aims to understand how effective the existing referral
pathways are and what services are needed to ensure the rights of forcibly displaced
and stateless people who have experienced GBV in Estonia.
______________________
13
S. R. Fatema, et.al. (2019), Women's health-related vulnerabilities in natural disasters: a systematic review protocol, BMJ
Open, 9 (12):e 032079. Doi: 10.1136/bmjopen-2019-032079.
14
A. Wells jt. (2019), Gender-based violence against refugee & asylum-seeking women - a training tool. Training Manual CCM-
GBV project. SOLWODI Deutschland e.V. https://www.giraffaonlus.it/wp-content/uploads/2019/10/training-manual-CCM-
GBV_EN-r.pdf (Accessed 20 November 2024).
15
P. Laskey jt. (2019). A systematic literature review of intimate partner violence victimization: An inclusive review across
gender and sexuality. Aggression and Violent Behaviour, 47, 1–11. https://doi.org/10.1016/j.avb.2019.02.014.
16
Ibid.
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2. Overview of GBV and SEA in Estonia
To analyse the practical obstacles to access the VSS in Estonia, it is important to
highlight the challenges of working with individuals who have experienced SEA
or GBV. The state has developed various programmes, referral pathways, and
legislative amendments to support GBV survivors.
The Ministry of Justice of Estonia has adopted a strategy for prevention of GBV and
human trafficking and exploitation as the part of the Violence Prevention Agreement
2021-2025.17 In 2024, the Ministry of Justice published an analysis of the compliance
of Sexual Autonomy-Related Offences with the Council of Europe Convention on
Preventing and Combating Violence against Women and Domestic Violence (the
Istanbul Convention).18 The studies highlight that the offenses against sexual self-
determination, specifically §§ 141, 141¹, and 143 of the Penal Code, do not fully
comply with Article 36 of the Istanbul Convention (the concept of the absence of
voluntary consent for all sexual activities).19 This essentially also creates confusion
about the concept of a victim of sexual exploitation.
In March 2024, the research centre Praxis released findings from the study Pretrial
Investigation of Sexual Violence.20 The study highlights improvements in Estonia's
pre-trial procedures for sexual violence, emphasizing an increased survivor-centred
approach and improved awareness and attitudes among those conducting
investigations. However, the study identifies several remaining obstacles that may
further victimize survivors of sexual violence, erode trust in the legal system, and
impede the prosecution of perpetrators. The study also explores the potential
introduction of a consent-based definition in determining sexual violence and rape.
There is an ongoing political and institutional discussion on this issue.21
Stateless and forcibly displaced people in Estonia can access VSS services in the
same manner as Estonian citizens.
In 2023, a total of 7,012 violence cases were registered in Estonia, including 3,186
cases of domestic violence.22 Domestic violence crimes accounted for 45 per cent of
all registered violent crimes.23 In 2023, physical abuse accounted for 87 per cent of
______________________
17
Ministry of Justice of the Republic of Estonia, the 2021-2025 Violence Prevention Agreement, www.just.ee/kuritegevus-ja-
selle-ennetus/vagivallaennetuse-kokkulepe.
18
Ministry of Justice, On the conformity of the elements of offences against sexual self-determination with the Istanbul
Convention of the Council of Europe Analysis, Analüüs seksuaalse enesemääramise vastaste süütegude koosseisude
vastavusest EN Istanbuli konventsioonile.pdf.
19
Supra note 12 and 13.
20
Mõttekoda Praxis, Seksuaalvägivalla kohtueelne uurimine, www.praxis.ee/uploads/2024/03/Seksuaalvagivalla-kohtueelne-
uurimine.pdf.
21
Feministeerium, Consent Act FAQ, 26 March 2024, https://feministeerium.ee/nousolekuseaduse-kkk/; Gortfelder B.,
Nõusolekuseadus tuleb: justiitisministeerium saatis väljatöötamiskavatsuse kooskõlastusringile, Delfi 18.12.2024,
www.delfi.ee/artikkel/120344621/nousolekuseadus-tuleb-justiitsministeerium-saatis-valjatootamiskavatsuse-kooskolastusringile.
22
Justiitsministeerium, (2023), Kuritegevus Eestis 2023. Perevägivald ja ahistamine. In English: The Ministry of Justice, (2023),
The Crime in Estonia 2023. Domestic violence and harassment, https://www.justdigi.ee/kuritegevus2023/perevagivald-ja-
ahistamine/.
23
Ministry of Justice, Crime in Estonia 2023, https://www.justdigi.ee/kuritegevus2023/perevagivald-ja-ahistamine/.
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reported cases, followed by threats at 6 per cent, sexual crimes at 5 per cent, and
other violent crimes at 2 per cent. Since 2021, the share of physical abuse has
increased from 83 per cent to 87 per cent. Threatening decreased from 10 per cent in
2021 to 6 per cent in 2023. Sexual crimes stayed at the same level of 5 per cent and
other violent crimes at 2 per cent in all years (2021-2023).24 See Figure 1.
Figure 1. Distribution of violent crimes related to domestic violence
by type of crime
100%
87% 87%
90% 83%
80%
70%
60%
50%
40%
30%
20%
10%
7% 6% 5% 5%
10% 4% 2% 2% 2%
0%
Physical abuse Threatening Sexual crimes Other violent crimes
2021 2022 2023
Source: Justiitsministeerium. (2023). Kuritegevus Eestis 2023. Perevägivald ja ahistamine.
Nevertheless, a large share of individuals who have experienced GBV,25 in Estonia,
do not reach out to the police, victim support, or healthcare systems. This
prevents them from receiving the necessary support for recovering from trauma.26 The
violence prevention agreement (in Estonian “Vägivallaennetuse kokkulepe”)
emphasizes the need for better case-based oversight and the availability of
gender-based data to ensure the protection of individuals who have experienced
GBV, and to assess both the adequacy of existing services and the need for additional
services.
Previous studies have mainly focused on the prevalence of GBV in Estonia,27 as well
as on understanding the awareness and attitudes of individuals who have experienced
GBV, domestic violence, human trafficking, labour exploitation, or involvement in
prostitution. These studies have also assessed the level of awareness regarding
VSS.28 Similarly, other studies have focused on examining access to justice of
______________________
24
Ibid.
25
64 per cent of women have faced violence at home, see more in: Vägivallateenuste kokkulepe 2021-2025, p.7.
https://www.kriminaalpoliitika.ee/sites/krimipoliitika/files/elfinder/dokumendid/vagivallaennetuse_kokkulepe_2021-2025.pdf.
26
Ibid., p.15.
27
M. Puniste & T. Taal. (2022). ‘Care4 Trauma: Improving GBV Victims Support Services and Access to Justice through
Trauma-Informed Care.’ State-of-the-Art Assessment. Country Report: Estonia. Women’s Support and Information Centre
NPO. Retrieved from: https://naistetugi.ee/wp-content/uploads/2022/07/Care4Trauma_CountryReportEstonia_ENG.pdf.
28
Sotsiaalkindlustusamet (2024), Eesti elanikkonna teadlikkuse uuring soopõhise vägivalla ja inimkaubanduse valdkonnas, in
English: The Social Insurance Board (2024), ‘Study on Public Awareness on Gender-Based Violence and Human Trafficking in
Estonia,’ https://www.sotsiaalkindlustusamet.ee/sites/default/files/documents/2024-
04/Eesti%20elanikkonna%20teadlikkuse%20uuring%20soop%C3%B5hise%20v%C3%A4givalla%20ja%20inimkaubanduse%2
0valdkonnas.pdf.
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individuals who have experienced GBV, as well as the barriers these individuals have
encountered,29 and how different organizations (e.g., police, health institutions, VSS,
and government organizations) cooperate to identify and assess the needs of those
individuals and refer to the appropriate services.30 Lastly, the scope of previous
research was to map the availability of online counselling and e-courses for individuals
who experienced GBV.31
In 2023, 30 individuals in Estonia experienced sexual exploitation with signs of
human trafficking. These individuals were from Ukraine (14), Venezuela (4), Brazil (4),
Colombia (2), Russia (2), Thailand (2), the Dominican Republic (1), and Kazakhstan
(1).32 A total of 289 potential survivors received counselling through the human
trafficking helpline.
Psychological violence has also been reported. Half of the calls to the victim support
crisis hotline33 were related to psychological violence that affected the mental health
of the survivors. As of 2023, a total of 6,723 calls were received. Seventy per cent of
the calls were made in Estonian, 23 per cent in Russian, and 5 per cent (348 calls) in
the Ukrainian language. Since the victim support crisis hotline provides information
only in three languages (Estonian, Russian, and English), individuals who do not
speak these languages face difficulties accessing the services adequately.
Additionally, online counselling services were provided to 1,317 individuals, who
primarily sought support for anxiety, depression, and relationship difficulties.34
The results of these studies have shown that most of the overall population in
Estonia (approximately 82 per cent) is familiar with at least one VSS. Nevertheless,
awareness appears to be lower among residents of other nationalities, with around 71
per cent of non-Estonian residents reporting familiarity with at least one
service.35
The services with the highest levels of recognition include the Women’s Support
Centres (approximately 61 per cent) and the Victim Support Crisis Hotline
(approximately 59 per cent). Awareness of other services is comparatively lower.
Around one third of the population (approximately 35 per cent) is aware of sexual
violence crisis centres, while a quarter of respondents are familiar with services such
as victim support workers (27 per cent), online mental health counselling (26 per cent),
______________________
29
M. Puniste & T. Taal (2022), The study analysed national, regional, and local legislation, policies, guidelines, and victim
studies related to trauma-informed care.
30
M. Vollmer & A. Markina (2017), Developing Directive-Compatible Practices for the Identification, Assessment, and Referral
of Victims. National Report: Estonia, https://www.ibs.ee/wp-content/uploads/2022/01/VICT-report-ESTONIA-3.pdf.
31
K. Abel jt (2023), Sotsiaalkindlustusameti Aastaraamat (2023), in English: K. Abel et al (2023), Social Insurance Board
Yearbook (2023), https://www.sotsiaalkindlustusamet.ee/sites/default/files/documents/2024-04/SKA_aastaraamat_2023.pdf, p.
23.
32
Ibid., pp. 23-24.
33
The victim support crisis Hotline respond in three languages: Estonian, Russian and English.
34
Ibid., p. 23.
35
K. Abel jt. (2023), Sotsiaalkindlustusameti Aastaraamat (2023), in English: K. Abel et al (2023), Social Insurance Board
Yearbook (2023), https://www.sotsiaalkindlustusamet.ee/sites/default/files/documents/2024-04/SKA_aastaraamat_2023.pdf
p.23.
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and emotional support and spiritual care hotlines (25 per cent). Approximately 19 per
cent of the population is aware of mental health services focused on trauma recovery.
Only few individuals (around 10 per cent) are familiar with psychosocial support
services, victim support for human trafficking survivors, and services supporting the
cessation of violence. The restorative justice service36 is known to only 6 per cent of
the population. See Figure 2.
Figure 2. Estonian population awareness of the provided victim
support services
6%
Restorative Justice Service
10%
Services Supporting Cessation of Violence
10%
Victim Support for Survivors of Human Trafficking
10%
Psychosocial Support Services
19%
Mental Health Services (Trauma Recovery)
25%
Emotional Support and Spiritual Care Hotlines
26%
Online Mental Health Councelling
27%
Victim Support Workers
35%
Sexual Violence Crisis Centres
59%
Victim Support Crisis Hotline
61%
Women's Support Centre
0% 10% 20% 30% 40% 50% 60% 70%
Source: K. Abel, et.al. (2023). Sotsiaalkindlustusameti Aastaraamat (2023)
Furthermore, as presented in Figure 3, more than half of the population (58 per cent)
believe there are challenges in ensuring the human rights of individuals who have
suffered domestic violence. While more than half (over 50 per cent) view domestic
violence as a serious issue and a violation of human rights, approximately one in
three Estonians (41 per cent of men and 19 per cent of women) feel that the issue
is exaggerated and that such incidents do not occur within their social circles or local
communities. A significant portion of the population (68 per cent) expresses support
______________________
36
‘Restorative justice’ means any process whereby the victim and the perpetrator are enabled, if they freely consent, to
participate actively in the resolution of matters arising from the criminal offence through the help of an impartial third party.
Directive 2012/29/EU OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL of 25 October 2012 establishing minimum
standards on the rights, support and protection of victims of crime, and replacing Council Framework Decision 2001/220/JHA
art 2.1.d https://eur-lex.europa.eu/legal-content/EN/TXT/HTML/?uri=CELEX%3A32012L0029.
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for the implementation of a specific domestic violence law, which they believe would
enhance the effectiveness of addressing domestic violence in Estonia.37
Figure 3. Views on incidents of domestic violence among men and
women in Estonia
Women think that issue is exaggerated and that
such incidents do not occur within their social 19%
circles or local communities
Men think that issue is exaggerated and that such
incidents do not occur within their social circles or 41%
local communities
Both men and women view domestic violence as a
58%
violation of human rights
Both men and women support implementation of a
specific domestic violence law to enhance the
68%
effectiveness of addressing domestic violence in
Estonia
0% 10% 20% 30% 40% 50% 60% 70% 80%
Source: I. Pettai (2022). Domestic and Gender-Based Violence in Estonia.
In 2024, the Socio-Economic Insights Survey (SEIS) was conducted by UNHCR in
Estonia.38 According to the survey, respondents are most familiar with safety and
security services, such as the police and safe shelters (70 per cent), and health
services (66 per cent) as the primary ways to access GBV support. Fewer respondents
would recommend psychosocial services (41 per cent), dedicated helplines (37 per
cent), or legal assistance (30 per cent) to someone from their community who has
experienced GBV. Additionally, men are more likely than women to lack awareness of
available GBV services (40 per cent vs. 28 per cent).39
Lastly, the previous studies have shown that referral mechanism is effective only
between the PBGB as well as SIB and VSS. Health institutions provide services to
individuals who have experienced GBV, but they are not part of the support network,
resulting in a lack of a holistic approach.40 The PBGB does not have guidelines for
assessing the needs of individuals who have experienced GBV. The needs of those
people are self-assessed and primarily based on participants' personal knowledge and
______________________
37
I. Pettai (2022), Domestic and Gender-Based Violence in Estonia. National Survey Results. Estonian Open Society Institute.
Retrieved from: https://media.voog.com/0000/0035/2397/files/Pere-
%20ja%20naistevastane%20v%C3%A4givald%20Eestis%20%20%202020%20aasta%20uuringu%20%20tulemused.pdf.
38
UNHCR, 2024 Estonia Socio-Economic Insights Survey, https://microdata.unhcr.org/index.php/catalog/1222/.
39
Ibid., p. 17. In that survey.
40
Supra note 23, M. Vollmer & A. Markina (2017).
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subjective judgment. A formal identification process is only applied to determine if an
individual who has experienced GBV, belongs to a specific group, such as individuals
used for human trafficking of children who have been sexually abused.41
In December 2023, new agreements came into effect with women’s support centres
established in all counties of Estonia. These centres offer counselling and secure
temporary accommodation to women who have experienced violence. Women
Support Centres are central service providers at the local level.
In 2023, nearly 2,000 women sought assistance from Women’s Support Centres, with
secure accommodation provided to 160 women and 173 children. Additionally,
trauma-focused mental health support was offered through 67 partner organizations,
ensuring comprehensive care for those in need. Survivors of sexual violence can seek
help from sexual violence crisis centres located in Tallinn, Pärnu, Tartu, and Kohtla-
Järve. During the same year, three support groups for survivors of sexual violence
were active, holding a total of 170 sessions with 36 participants. Crisis centres
provided assistance to 209 individuals, including nine men, offering essential support
to those in need.
In 2023, the Human Trafficking Helpline received 431 calls. Assistance was provided
to 289 potential survivors and 142 officials, including employees of the PBGB, the
Labour Inspectorate, and local governments involved in trafficking prevention.
Additionally, 113 in-person consultations were conducted. Among the potential
survivors, 89 per cent were citizens of 20 different countries.42
______________________
41
Ibid. These individuals are entitled to additional support and state-funded services.
42
K. Abel jt. (2023), Sotsiaalkindlustusameti Aastaraamat (2023). In English: K. Abel et al. (2023), Social Insurance Board
Yearbook (2023), p.24. Retrieved from: https://www.sotsiaalkindlustusamet.ee/sites/default/files/documents/2024-
04/SKA_aastaraamat_2023.pdf.
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3. Methodology of the study
This report uses an exploratory case study as its main research approach to examine
the effectiveness of referral pathways for individuals who have experienced GBV when
accessing VSS in Estonia. The study employs four main methods:
1. exploratory desk research;
2. legal and policy analysis;
3. interviews and consultations with relevant stakeholders;
4. individual interviews with forcibly displaced and stateless persons, including
GBV survivors.
The combination of these methods ensures comprehensive data collection, and
triangulation has been applied to enhance understanding of the research topic.
3.1 Phases of the Research and Research Questions
This research is conducted in three phases.
The first phase of the study involved a literature review and analysis of relevant
sources, including existing legal and policy documents. The systematic literature
review provided an overview of previous studies on the effectiveness of state-funded
VSS and levels of satisfaction with their quality. It also included an analysis of
published quantitative data regarding individuals who have experienced GBV, the
services accessible to them, and referral pathways to other institutions in Estonia.
Reviewing and analysing the available literature helps objectively evaluate existing
knowledge and supports the generalization of research findings.43 It also allows for the
examination of international good practices. An analysis of the existing legal
framework helps identify gaps in legislation that require attention.
Literature and document analysis
Desk research was carried out by reviewing relevant policy documents, published
reports, scholarly analyses, and academic literature. The literature review included
searches of academic databases in English such as Google Scholar, HeinOnline,
Juridica, Scopus, and Web of Science, along with specialized databases for guidelines
and case studies like EUR-Lex, Riigikohus, and Riigi Teataja. The desk research
utilized specific search terms derived from related publications, including academic
literature, policy documents, and industry reports concerning the assessment,
development, and implementation of protective and preventive measures for GBV
within Estonian and European social insurance systems. The results were selected
based on the following criteria: (i) relevance to the study's objectives, (ii) recency, and
______________________
43
H. Snyder. (2019). Literature Review as a Research Methodology: An Overview and Guidelines. Journal of Business
Research, 104: 333-339. Doi: 10.1016/j.jbusres.2019.07.039; A. Delios, jt. (2022). Examining the Generalizability of Research
Findings from Archival Data. Proceedings of the National Academy of Sciences USA 119(30): e2120377119. Doi:
10.1073/pnas.2120377119.
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(iii) source reliability. Findings from the desk research were further verified through
stakeholder consultations and online face-to-face interviews with individuals holding
temporary residence status in Estonia, including those who have experienced GBV.
The study identifies available VSS for refugees and asylum-seekers who have
experienced GBV, covering health, mental health and psychological support, safety
and security, and justice services.
Legal and policy analysis
To achieve the aims of the research, an overview of the existing legislation regulating
prevention of and response to GBV in Estonia, is provided. The legal and policy
analysis involved assessing the rules within the social insurance system, as well as
protective measures aimed at forcibly displaced and stateless individuals who have
experienced GBV. It also examined the availability and accessibility of VSS, including
social and healthcare services, and explored measures designed to prevent
victimization, fraud, stigma, and discrimination. The analysis of legislative acts,
regulations, and case studies used methods of legal interpretation to clarify the
purpose behind government rules and policies. Additionally, the analysis identified
legal and practical barriers faced by refugees and asylum-seekers who have
experienced GBV.
The second phase of this study includes interviews and discussions with
stakeholders from various institutions working with individuals who have experienced
GBV (See Annex II), and with the forcibly displaced people (temporary protection
holders) who live in Estonia.
The interviews were conducted to better understand the needs of forcibly displaced
people who have experienced GBV (e.g., what is their satisfaction with the services
and referral pathway to access services) as well as the needs of service providers and
those who refer to services. The interviews provided essential insights for evaluating
the effectiveness of existing services. Qualitative analysis of the interview data offered
an in-depth understanding of the research topic, as interviewees were able to respond
freely and express themselves in their own words.44 Interview data were transcribed
and systematically analysed according to key thematic areas.
The interviews helped identify the accessibility of relevant support services and
existing referral pathways for directing individuals who have experienced GBV towards
appropriate care. They also clarified the roles of various institutions and actors
involved, including social support services, healthcare providers, law enforcement
agencies, and NGOs.
Interviews and consultations with service providers and stakeholders
Interviews with service providers and stakeholders (see Annex 1) from municipalities,
______________________
44
I. Bertrand ja P. Hughes (2017), Media Research Methods: Audiences, Institutions, Texts. Springer.
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state agencies NGOs, medical facilities, centres for refugees and asylum-seekers,
women's shelters, and international organizations were conducted online between 14
and 22 November 2024. Discussions with stakeholders (n=15), each lasting
approximately 60 to 90 minutes, provided insights into referral patterns and helped
identify gaps in support pathways for refugees, forcibly displaced individuals, and
stateless persons who have experienced GBV in Estonia.
Individual interviews with forcibly displaced and stateless individuals, experienced
GBV including SEA
Individual interviews with forcibly displaced persons (n=5), all of whom held temporary
protection status, were planned to be conducted online between 2 and 17 January
2025. The purpose of these interviews was to assess their awareness and
experiences regarding services available to GBV survivors in Estonia. The personal
interviews provided insights into how referral pathways were structured and perceived
by individuals who had experienced GBV, as well as the accessibility and quality of
VSS. The quality of VSS was assessed using the Client Satisfaction Questionnaire
(CSQ-8) developed by Larsen et al. (1979). Additionally, the efficiency, effectiveness,
and impact of VSS on GBV survivors, along with the effectiveness of referral pathways
to relevant institutions, were evaluated according to OECD evaluation criteria.45
In the third phase, the effectiveness of identified referral pathways was assessed by
examining the strength of cooperation among institutions, service accessibility, and
timeliness of care delivery. Based on this assessment, recommendations for legal and
policy actions were developed to address identified gaps and enhance referral
pathways for forcibly displaced and stateless individuals who have experienced GBV.
To better understand obstacles and opportunities related to accessing services, the
coordination and roles of different institutions were described by answering the
following questions:
Legal and Regulatory Framework
● Does Estonian legislation regulate the prevention and response to violence,
including GBV and SEA?
● What changes in domestic legislation or social welfare organizations are
needed to ensure equal access to VSS for forcibly displaced people?
Available Services and Referral Mechanisms
● What VSS are available (in Estonia) for forcibly displaced and stateless persons
who experienced GBV?
______________________
45
OECD, (2021) Applying Evaluation Criteria Thoughtfully, OECD Publishing, Paris. Doi: 10.1787/543e84ed-en,
https://www.oecd.org/en/publications/applying-evaluation-criteria-thoughtfully_543e84ed-en.html.
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● What referral mechanisms exist and have been implemented to guide
individuals who have experienced GBV to these services (i.e., VSS), and are
they comprehensive, effective, timely, and accessible?
● How are individuals who have experienced GBV informed about relevant social
support services, and what are the primary sources of information for forcibly
displaced people?
Access and Obstacles
● What legal, practical, as well as organizational and administrative barriers do
individuals who have experienced GBV, face in accessing VSS in a timely and
adequate manner?
Institutional Roles and Coordination
● What roles do various institutions and actors (e.g., social support services,
healthcare, law enforcement, NGOs) play in providing support for individuals
who have experienced GBV?
● How is the coordination between these institutions organized to ensure that
individuals who have experienced GBV receive comprehensive and effective
support?
Survivor Satisfaction and Service Quality
● Are forcibly displaced people, who have experienced GBV, satisfied with the
accessibility and quality of the services provided?
● If not, what were the primary reasons for limited or inadequate support?
Recommendations for improvement
● What improvements are needed in the current situation (e.g., in legislation,
organization of the social welfare, or the development of person-centred
services) to provide refugees and asylum-seekers with equal opportunities for
assistance to access VSS?
Limitations of the current study
This study has several limitations that should be considered when interpreting its
findings. First, the research focused exclusively on adult forcibly displaced and
stateless individuals and did not include the perspectives of children or other
persons with specific needs. Second, the qualitative interview sample was
relatively small and consisted only of Ukrainian refugees holding temporary
protection status, which may limit the broader applicability of the findings to other
groups.
The study’s primary focus was on GBV, but forms such as psychological, emotional,
and economic violence, as well as less severe forms of domestic violence, were only
addressed to a limited extent. This reflects both the specific focus of the study and the
limited availability of relevant research and data in the Estonian context. Additionally,
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while the study explored referral pathways and access to services, less attention was
paid to the specific legal procedures available to asylum-seekers in GBV-related
cases, such as how and when legal aid can be accessed in family-related situations.
These limitations highlight the need for further research on the experiences of
other groups within the forcibly displaced population, especially asylum-seekers, and
on the full spectrum of GBV-related cases and support mechanisms.
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4. Legal and policy measures for the protection
of survivors of GBV and SEA in Estonia
4.1 An overview of existing legislation
This chapter provides an overview of the main legal acts that regulate the responses
to violence in Estonia.
There is an EU wide obligation of Member States to support survivors. According to
the Victims’ Directive,46 Member States must ensure that referrals take place at the
survivor’s first point of contact, typically through the police or victim support
organizations. Timely and efficient referral of survivors to appropriate support services
is essential. In Estonia, the police generally serve as the initial contact point. Referral
mechanisms connect the police with VSS, and generic VSS then guide survivors to
additional, specialized support providers.
Article 12 of the Constitution of Estonia47 states that everyone is equal under the law.
No one should be discriminated against based on ethnicity, race, colour, sex,
language, origin, religion, political or other views, property, social status or other
grounds.
Estonia has ratified Istanbul Convention48 and the new Victim Support Act49 entered
into force on 1 April 2023. Furthermore, Estonia is bound by the EU Directive
2024/1385 of the European Parliament and of the Council of 14 May 2024 on
Combating Violence against Women and Domestic Violence.50
Moreover, the Penal Code §§ 141, 1411, and 143 regulate criminal offences.51
According to §141 of the Penal Code, rape is defined as sexual intercourse with a
person against their will, either by using force or by exploiting a situation in which the
person is unable to resist or comprehend the situation. This offense is punishable by
imprisonment from one to six years.52 According to §143 of the Penal Code, sexual
intercourse or any other sexual act performed against a person's will by exploiting the
survivor’s dependency on the perpetrator - but without using force or taking advantage
of a situation where the survivor is unable to resist or understand the situation as
specified in §1411- is punishable by up to three years' imprisonment.
______________________
46
Directive 2024/1385 of the European Parliament and of the Council of 14 May 2024 on Combating Violence against Women
and Domestic Violence.
47
Eesti Vabariigi põhiseadus, RT I, 15.05.2015, 2, https://www.riigiteataja.ee/akt/115052015002.
48
Naistevastase vägivalla ja perevägivalla ennetamise ja tõkestamise Euroopa Nõukogu konventsiooni ratifitseerimise seadus,
RT II, 26.09.2017, https://www.riigiteataja.ee/akt/226092017001.
49
Victim Support Act1, RT I, 06.01.2023, 1, Adopted 14.12.2022.
50
OJ L, 24.5.2024.
51
RT I, 04.07.2024, 25.
52
§1411 of Penal Code.
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4.2 Legal definition of a victim
Estonian legislation includes two definitions of the term ‘victim’. The Victim Support
Act of 2023 replaced previous legislation that had been in effect for nearly two
decades. It introduced several new services, clearer guidelines for communication,
updated requirements for victim support providers, established principles for the
treatment of victims, and simplified the application process for crime victim
compensation.53 Victim Support Act defines a victim as “a person who is harmed or
dies as a result of a crime, violence or event of crisis”.54
The act specifies eligibility criteria for victim support and provides a somewhat broad
definition of the term 'victim'. Nevertheless, this definition aligns with the primary
objective of the Directive, emphasizing that victims should have access to support
services regardless of the severity of the crime or whether they have reported it.
A victim of trafficking in human beings is defined as "a person who has been identified
as a victim in criminal proceedings initiated based on the elements of a crime outlined
in § 133–1333, 138–140 or 175 of the Penal Code or a person who would be
considered a victim in criminal proceedings initiated based on elements of a similar
crime defined in the penal code of another country”.55
The Victim Support Act also defines a victim of violence against women as “a woman
who has suffered physical, sexual, psychological, or economic harm or distress in
public or private life as a result of domestic violence, GBV, or threats thereof, including
coercion or arbitrary deprivation of liberty”.56
According to the Victims Support Act, “a victim of domestic violence is a person who
has experienced acts of physical, sexual, psychological or economic violence in a
family or cohabitation or by a former or current spouse or partner, regardless of
whether the perpetrator of the act of violence lives or has lived in the same place of
residence as the victim”.57 A victim of sexual violence is defined as "a person subjected
to sexual acts without their consent, forced to engage in sexual acts with a third party,
or otherwise sexually abused”.58 According to § 4 (1) of the Victim Support Act, victim
support refers to a system comprising state-organized VSS and compensation
provided to victims of crime.
______________________
53
SKA Aastaraamat 2023, p 24.
54
§4 (2) Victims Support Act.
55
§4 (3) VSA.
56
§4 (4) VSA.
57
§4 (5) VSA.
58
§4 (6) VSA.
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4.3 Victims in criminal procedures
In Estonia, criminal proceedings involve courts, prosecutors' offices, and investigative
bodies like the PBGB and Internal Security Service. Under §193 of the Code of
Criminal Procedure, the Prosecutor's Office may initiate proceedings if there is reason
and evidence of a criminal offense. If initiated by the police, the Prosecutor’s Office
must be informed immediately. Proceedings begin based on a report or information
indicating a criminal offence and are justified by identifying criminal elements.
Pre-trial investigations are conducted by the PBGB or the Internal Security Service,
directed by the Prosecutor's Office to ensure legality and efficiency. After the
investigation, the prosecutor either files a bill of indictment in court or terminates the
case, with conciliation proceedings as a possible outcome. The trial phase involves
the victim, suspect or accused, their counsel, civil defendant, and third parties. 59 The
parties to a court proceeding have all the rights of participants in the proceedings
provided for in the Code of Criminal Procedure (Kriminaalmenetluse seadustik, §17
(2)). Under the Code of Criminal Procedure, all provisions for witnesses also apply to
victims. A person becomes a victim in proceedings either through procedural acts or
by a ruling of the court. Victims can be involved at any stage of the process and in all
court instances until the conclusion of appeal proceedings.
Article 195 of the Code of Criminal Procedure ensures victims' rights when reporting
a crime. Complaints can be submitted orally or in writing to an investigative body or
prosecutor’s office. Oral reports made onsite are recorded, with a copy provided to the
complainant. Reports via phone are either written down or audio recorded. If the
complainant is the victim, authorities must confirm receipt within 20 days.
If proceedings are not initiated, the reporting individual must be notified within 10 days.
These provisions align with Article 5 of the Directive, ensuring victims can report
crimes through various means and receive written confirmation or acknowledgment.60
4.4 Right to linguistic assistance, interpretation and translation
The Code of Criminal Procedure also guarantees the victim's right to get linguistic
assistance. The official language of criminal proceedings in Estonia is Estonian.
However, the Code of Criminal Procedure allows to conduct proceedings in another
language if the body conducting criminal proceedings, participants in the proceeding
and parties to the court proceeding consent to it and if the body, participants and
parties are proficient in such language. If doubts arise regarding a victim’s proficiency
in Estonian, the authority conducting the proceedings will determine their language
proficiency. If the victim does not speak Estonian sufficiently, an interpreter or
______________________
59
Code of Criminal Procedure §17 (1), RT I 2003, 27, 166.
60
Art 5, Directive 2024/1385 OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL of 14 May 2024 on combating
violence against women and domestic violence.
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translator will be provided. According to the Code of Criminal Procedure, victims have
the right to request translations of essential documents - such as decisions on the
termination of cases or court judgments - into their native language or another
language they understand, within ten days. Victims may also request translations of
other documents crucial to protecting their procedural rights. If the authority
responsible for the proceedings determines that translating such additional documents
is not justified, it must issue a formal ruling on the refusal.61 Additionally, individuals
who access VSS are entitled to free translation services for up to two years.
4.5 Assessment of individual protection needs
The Code of Criminal Procedure requires authorities conducting proceedings to
evaluate whether a victim needs special treatment and protection. This assessment
considers factors such as the victim's individual characteristics, the severity and nature
of the offense, the profile of the suspect, the circumstances of the crime, and the harm
caused. Minors are presumed to require special protection. Based on the outcome of
this assessment, specific measures are determined to ensure the victim’s safety, such
as providing adapted premises, involving specialists trained in victim care, or
maintaining consistent personnel throughout the proceedings.
The explanatory note accompanying the draft law transposing the Victims' Directive
emphasizes that while no formal procedure for assessing victims' needs currently
exists, authorities like the police or prosecutor's office are still responsible for
evaluating each victim’s needs to guarantee appropriate support. Additionally, the
explanatory note stresses that further training and clear guidelines are necessary to
adequately address victims’ specific needs within criminal procedures.62
The explanatory note also recognizes that the concept of assessment is needed to be
created. Among others, police officers, prosecutors and judges shall consider,
whether:
● The victim is a minor;
● The offence is a high-risk crime such as sexual offence, serious violent crime,
domestic violence, human trafficking, organized crime, hate crime;
● The personality or situation of a person involves high-risk factors such as
threats to the victim, high age, mental/physical special needs, language, ability
to express his or her will;
● In case of domestic violence to assess whether medical assistance is needed
because of injuries, whether act of violence is repeated, whether there are
children in the family, whether the victim is pregnant;
● Whether a firearm was used or there is access to firearms;
● Whether the victim has suicidal thoughts;
● Whether the perpetrator was previously violent;
______________________
61
Code of Criminal Procedure §10, RT I 2003, 27, 166.
62
Ohvriabi seaduse eelnõu seletuskiri.
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● Whether there was a violation of a restraining order;
● Whether the victim or a perpetrator has an addiction risk.63
4.6 Right to be informed
According to §6 of the Victim Support Act, information about available VSS must be
accessible through the SIB, local authorities, police, rescue services, healthcare
institutions, social welfare services, educational institutions, youth work agencies,
prosecutor’s offices, courts, and other relevant agencies, including on their websites.
Additionally, officials involved in criminal proceedings are obligated to forward the
victim’s information promptly to SIB to facilitate timely access to support services.64 At
the webpage of SIB the information about the support to victims is available in
Estonian, Russian, and English only.
The Code of Criminal Procedure ensures the victim's rights to be informed about the
custody of a suspect and to request notification of their release if there is potential
danger.65 The victim may also choose one person to accompany them during any
procedural acts unless the authority conducting the proceedings has a justified reason
to refuse this request.
4.7 Rights to legal representation
A victim, civil defendant, or third party who is a natural person may participate in
criminal proceedings either personally or through a representative. Choosing to
participate personally does not affect their right to be represented by someone else.
Victims are entitled to state legal aid in criminal proceedings under the conditions
and procedures specified in the State Legal Aid Act. If a court determines that the
victim's essential interests might not be adequately protected without legal
representation, the court may, on its own initiative, grant state legal aid in accordance
with §41 of the State Legal Aid Act.66
4.8 Right to access victim support services
Victim support services (VSS) are provided on the principle of regionality and shall
be available in every county of Estonia.67 The law states that information
concerning the possibilities of using the VSS shall be available at local government,
police, rescue centre, health care, social welfare and other relevant authorities and
their websites. Victim Support Act 68 §15 regulates the purpose and content of VSS.
The purpose of VSS is to ensure social, psychological, and emotional support
______________________
63
Ministry of Justice (Justiitsministeerium), ‘Seletuskiri kriminaalmenetluse seadustiku muutmise ja sellega seonduvalt teiste
seaduste muutmise seaduse eelnõu, millega laiendatakse kannatanute õigusi kriminaalmenetluses, juurde’.
64
§7 of the Victims Support Act .
65
§133 Code of Criminal Procedure.
66
State Legal Aid Act - https://www.riigiteataja.ee/en/eli/525082015004/consolide.
67
https://sotsiaalkindlustusamet.ee/ohvriabi#kontakt, (The webpage with specific contact names is available only in Estonian),
06.01.2024.
68
RT I, 06.01.2023, 1.
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who have experienced GBV, including SEA in Estonia
(hereinafter psychosocial support) to persons who have been harmed due to a crime,
violence or event of crisis to contribute to the preservation or restoration of their sense
of security and ability to cope and to prevention of further damage.
According to Victim Support act §15 (2) VSS are:
● basic VSS;
● psychosocial support in the event of crisis;
● women's support centre service (primary psychological crisis support,
counselling, legal advice, safe temporary accommodation);
● sexual violence crisis support;
● service for victims in human trafficking;
● restorative justice services;
● support for abandonment of violence;
● mental health assistance in support of recovery from trauma;
● assistance in communicating with state and local authorities and relevant
natural and legal persons.69
The Code of Criminal Procedure (§8) requires investigative bodies and courts to
inform victims of their right to contact victim support officials, access support
services, and receive state compensation for violent crime victims. They must also
explain safety measures available under the Code. If the victim does not speak
Estonian, translation must be provided.
Under §15(3), SIB may delegate the provision of certain VSS, fully or partially, to
individuals, organizations, or local authorities through administrative contracts.70 Local
government social workers can also serve as the initial contact point for accessing
support services, depending on where an individual first seeks assistance.
The Victim Support Act (§16) outlines specific provisions for victims of human
trafficking and terrorist offenses committed in Estonia. These victims are entitled to
support services regardless of their legal residency status, until their departure date or
their obligation to leave Estonia. GBV victims lose access to services once they leave
Estonia.71
Furthermore, Equal Treatment Act72 safeguards individuals from discrimination based
on nationality (ethnicity), race, colour, religion or belief, age, disability, or sexual
orientation. According to the Act, discrimination on the grounds of nationality (ethnic
origin), race, or colour is strictly prohibited. Therefore, all services provided to local
citizens should be also provided to refugees and other legally staying persons
including those who have faced GBV.
______________________
69
Victim Support Act §17 (2).
70
See more here: https://sotsiaalkindlustusamet.ee/en/child-and-adult-need-help/support-victims/womens-support-centres.
71
Victim Support Act §17 (3).
72
Equal Treatment Act1, RT I, 22.10.2021, 11.
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
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5. Overview of existing referral pathways and
service providers
Estonia does not have a specific legal definition for referral pathways. According to the
Health Board (Tervisekassa), the comprehensive nationwide referral management
system provides an event-based overview of a patient’s treatment journey, covering
various referrals, responses, and care responsibilities. This system ensures continuity
of care, supports clinical processes, saves specialists' time, and improves both patient
experience and the overall quality of healthcare services.73 In this study, the term
"referral pathways" refers to the processes through which survivors of violence
are guided to relevant support services. The schematic description of the existing
referral pathways in Estonia is presented in the Executive summary of the current
report.
5.1 Available support services provided by the service providers
Estonia’s victim support system includes VSS and compensation for crime victims.
National VSS are provided by staff members of the SIB - including victim support
workers, counsellors, coordinators, and specialist - in collaboration with approximately
90 contractual partners such as NGOs, hospitals, psychological service providers, and
around 200 volunteers.
SIB operates a central office responsible for coordinating and delivering victim support
across Estonia. Victim support officers from the SIB are stationed at police stations,
where they offer emotional support, provide guidance and information, and facilitate
communication with other relevant institutions and NGOs. The primary aim of the SIB’s
VSS is to assist individuals affected by crime, violence, or crisis situations, helping
them maintain or restore their coping abilities and sense of security, while also working
to prevent future occurrences of violence.74
Services for victims of GBV are available to any resident of Estonia including
forcibly displaced and stateless people. The VSS is free of charge public service aimed
to maintain, enhance the ability of a victim to cope with the situation.
There are 15 counties in Estonia and each county has at least one official who
specializes in victim support. Victims support office is usually in the same building
as the police.
Asylum-seekers living in an Accommodation Centre for Asylum-Seekers (Vao Centre
and Vägeva Centre) are assisted by the social workers and managers of the centre.
______________________
73
https://www.tervisekassa.ee/en/organization/e-health-products/national-referral-system, accessed 16.01.2025, see also
https://fra.europa.eu/sites/default/files/fra_uploads/country-study-victim-support-services-ee.pdf 16.01.2025
74
The Social Insurance Board provides 24/7 crisis counseling in Estonian, Russian, and English via the Victim Support Crisis
Hotline (116 006) and the chat feature on the website www.palunabi.ee.
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
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According to the information gained from SIB and Accommodation Centre for Asylum-
Seekers, all asylum-seekers get access to all relevant services, including medical
help, social counselling and psychological counselling in case of need.
The same services that are provided to Estonian citizens are provided also to refugees
by the local authorities. When the individual, who is a survivor of GBV turns to the
social worker at the local authority, they are offered to be referred to the VSS, with
their consent. Besides the service provided by the public authorities, there are several
NGOs which are also offering GBV VSS.
Service agreements are in place with women’s support centres, sexual violence crisis
centres, organizers of support groups, providers of counselling services for those
involved in sex trade, and providers of mental health support for trauma recovery. Daily
collaboration with NGOs and the private sector ensures comprehensive support for
survivors of violence. Survivors can receive support services via the Victim
Support Crisis Hotline at 116 006 or the Emotional Support and Pastoral Care
Hotline at 116 123.
Support is also available for those who have experienced particularly severe events.
High-risk domestic violence victims - those whose lives are in danger - receive
support through the MARAC network model (Multi-Agency Risk Assessment
Conference).75 MARAC network includes professionals from such as victim support,
police, prosecution, local government and child protection, women's support centre,
specialist supporting perpetrators in giving up violence, MARAC volunteer, and, when
justified, other institutions.
The MARAC model involves assessing victims' needs, creating personalized safety
plans, and holding regular case-management meetings. Once the intervention has
successfully ensured the victim's safety and protection, active intervention concludes,
and a one-year monitoring period begins. Each member of the MARAC network has
clearly defined roles and responsibilities. The main goal of the model is to prevent
homicides, suicides, serious harm, and the transmission of trauma across generations
resulting from intimate partner violence.
The MARAC model emphasizes that high-risk cases require coordinated responses
across multiple agencies, involving shared information and integrated services. Since
2024, MARAC core teams have been active in every Estonian county, including
representatives from VSS, police, municipalities, women’s support centres,
prosecutor’s offices, child protection agencies, and medical institutions. Public
perception views MARAC as an effective and timely intervention, and media reports
frequently highlight its significance.
______________________
75
Social Insurance Board, Helping an Adult Victim of Domestic Violence in Distress (MARAC Model),
https://sotsiaalkindlustusamet.ee/MARAC.
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
who have experienced GBV, including SEA in Estonia
Overall, survivors of GBV can access the following assistance and services:
1. Healthcare and medical assistance integrated with police services. Victims
can call 112 for urgent medical help, visit emergency reception, and report
offenses to the police.
2. Victim support centres (incl. Women support centres) provide medical and
legal assistance, initial counselling on claiming damages, psychosocial crisis
care, family therapy, and referrals to professional psychotherapists. They also
assist in communication with state and local authorities.
3. Sexual violence crisis centres in major hospitals offer support, medical
examinations, psychological referrals, preventive treatment against HIV and
hepatitis B, and police contact if needed.
4. Women’s help centres and sexual violence centres offer 24/7 assistance,
shelter, and support services.
5. Accommodation centres (Vao and Vägeva) provide primary healthcare
access for asylum-seekers and international protection holders.
6. Social Insurance Board helpline (116 006) offers free, 24/7 anonymous
assistance in Estonian, English, and Russian for GBV victims. Other languages
are not supported.
7. Women’s helpline (1492) provides 24/7 counselling for women experiencing
physical, psychological, economic, or sexual abuse.
8. Children’s helpline (116 111) offers counselling, legal, medical, and
psychological support for children in Estonian, English, and Russian. Other
languages are not supported.
9. Online support is available via www.palunabi.ee,
[email protected], and
www.lasteabi.ee in Estonian, English, and Russian. Other languages are not
supported. They provide legal, medical, and psychosocial assistance.
In June 2018, the Estonian police launched public campaign "Aga mina julgen
sekkuda" ("But I Dare to Intervene") to encourage reporting of intimate partner violence
and highlight it as a societal issue. Despite efforts, many cases remain unreported. In
2017, 2,632 domestic violence crimes were registered, with 40 per cent of survivors
experiencing repeat violence within five years. The campaign was part of the broader
"Aga mina" ("But Me") initiative to promote a safer society.76 In early 2018, the
Estonian police launched a campaign highlighting stalking as a crime, punishable by
a fine or up to one year in prison. Criminalized in 2017, stalking includes repeated
unwanted contact, following, or interference causing fear or distress. It affects both
adults and youth, often through online bullying.77
______________________
76
PBGB, Domestic violence prevention campaign, www.politsei.ee/et/juhend/ennetusprojektid.
77
PBGB, Harassing stalking campaign, www.politsei.ee/et/juhend/ennetusprojektid/ahistava-jalitamise-kampaania.
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To gain a deeper understanding and evaluate the existing referral pathways, 15
interviews were conducted with stakeholders and service providers. The role of each
institution is provided below.
The Police and Border Guard Board (PBGB) is often the first point of contact for
GBV or SEA survivors, it is also a part of the MARAC system. Police are required to
inform survivors about support services. With the survivor’s consent, their contact
details are shared with a victim support worker, and joint home visits may be
conducted with police and support workers. Survivors receive an informational booklet
with contact details for key support institutions, including police, shelters, victim
support, and welfare services. The booklet also outlines survivors’ rights and includes
space for personalized contact information provided by the police. It is available in
Estonian, Russian, and English. Other languages are not available, which can be a
limitation for the forcibly displaced people to access the services.78
The Social Insurance Board (SIB), operating under the Ministry of Internal Affairs,
provides VSS. When a survivor of GBV seeks assistance, SIB assesses their needs
and refers them to appropriate services, including the police, psychologists, women's
shelters, social workers, or hospitals. The closest collaboration is with the police,
where case management networks are created to address incidents. While
communication with psychologists and the prosecutor’s office occurs, it is primarily
oral to maintain confidentiality. However, cooperation with medical institutions is
limited, as they often do not provide feedback, even in cases where survivors are
referred directly to clinics.79 SIB is a part of the MARAC system. Its aim is to assist a
grown-up survivor of family violence in need and to provide rapid and effective support.
Tallinn Migration Centre (Tallinna Rändekeskus) provides counselling services to
refugees and migrants, regularly assisting individuals - predominantly women - who
have experienced GBV. Consultants at the centre offer immediate psychological
support and advise clients on available VSS.
The Women Support and Information Centre (MTÜ Naiste Tugi-ja Teabekeskus)
provides safe accommodation for women who have experienced violence or threats
of violence. Its services include temporary housing, psychological counselling, crisis
support, assistance with contacting authorities, legal counselling (e.g., regarding court
proceedings, divorce, or child protection issues), and help in rebuilding their lives.
Women can select services according to their individual circumstances, with
consultations tailored to their specific needs.
______________________
78
PBGB, Prevention Materials, www.politsei.ee/et/juhend/ennetusalased-materjalid.
79
Interview with SIB, 20.12.2024.
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
who have experienced GBV, including SEA in Estonia
There are several women shelters80 in Estonia though they do not have individual
websites. Information about these accommodation centres, available services, and
contact numbers can be accessed online via naisteabi.ee. These shelters receive
women 24 hours a day and provide immediate assistance: accommodation,
psychological crisis help, assistance in contacting authorities.
However, a noted concern is that some women’s shelters do not accommodate
women with a migration background, as highlighted in an interview with one of the
NGOs. The noted reasons to this were the low capacity and scarce resources of some
shelters to provide assistance to survivors of GBV.81
The Accommodation Centres for Asylum-Seekers (Vao and Vägeva Centres)
provide housing and support services for individuals applying for international
protection and assist recipients of protection in settling within local communities.
These centres offer various forms of support throughout the international protection
process, including referrals to medical care, psychological support, referral to the legal
aid, translation services, and police assistance when necessary. In cases of GBV,
survivors are referred to the police.
Estonian Refugee Council (ERC) provides support services to beneficiaries of
international protection in Estonia. As one of the main competence centres on forced
migration and integration in Estonia, ERC also plays a role in the referral mechanism
by directing individuals to the services they need.
Estonian Human Rights Centre (EHRC) is an independent NGO founded in
December 2009, advocates for human rights in Estonia and provides free legal advice
to refugees and migrants in Estonia. If EHRC works with a person, who is a survivor
of GBV, they refer them to the VSS of SIB.
The International Organization for Migration (IOM) has operated in Estonia for 20
years, focusing on counter-trafficking, integration, voluntary return, and public
awareness. It developed a national cultural orientation programme and trains officials
and NGOs. IOM case managers support vulnerable individuals through health
referrals, temporary accommodation, and psychosocial support training for first
responders. In GBV cases, individuals are referred to Victim Support (Ohvriabi).
Lifeline (MTÜ Eluliin) is a volunteer and professional association providing emotional,
psychological, and social counselling. Services include crisis support (e.g., debriefing
groups, EMDR), psychological rehabilitation, and targeted counselling for groups such
as trafficking victims, people involved in prostitution, individuals with addictions, and
______________________
80
Harjumaa, Ida Virumaa, Järvamaa, Jõgevamaa, Läänemaa together with Hiiumaa, Lääne Virumaa, Pärnumaa, Põlvamaa,
Raplamaa, Saaremaa, Tartumaa, Valgamaa, Viljandimaa, Võrumaa.
81
Interview with MTÜ Eluliin, 19.11.2024, Later it was verified that at least one women's shelter provided help for a woman with
temporary protection status.
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
who have experienced GBV, including SEA in Estonia
those living with HIV.82 The organization operates a dedicated phone line for persons
engaged in prostitution and regularly runs projects.
Tartu Welcome Centre supports migrants in settling into the Tartu and South Estonia
region. The team offers free consultations, registry services, and cultural or networking
events. They also provide information on NGOs and SIB services for GBV survivors
of migrant origin when needed.83
Tartu University Hospital (Tartu Ülikooli Kliinikum)84 is both a healthcare provider
and a research institution. For this study, representatives and a doctor were
interviewed to gather insights on referral pathways and identify areas for improvement
in the field of SEA and GBV.
Feministeerium (MTÜ Feministeerium) is an independent feminist organization
whose main areas of activity are communication, advocacy and empowerment of the
feminist community.85 The representatives of the NGO publish articles about GBV to
raise awareness about the existing issues.
Tallinn Women Crisis Centre (Tallinna Naiste Kriisikodu) supports survivors of
physical, sexual, psychological, and economic violence, with a focus on domestic
violence. The centre helps women - along with their children, if needed - break the
cycle of violence and works to prevent future abuse. Its mission is to ensure that every
child can grow up in a non-violent environment.86
In addition, the United Nations High Commissioner for Refugees (UNHCR)
country office in Estonia provides referrals for survivors of GBV through its online
platform, which offers guidance to refugees and asylum-seekers on the risks of human
trafficking, a concern often linked to GBV. The website includes resources on how to
stay safe, recognize signs of exploitation, and seek assistance. In cases of suspected
human trafficking or related abuses, the online guidance advises individuals to contact
the Estonian police via the emergency number 112 or reach out SIB's human
trafficking prevention and victim assistance counselling line.
Finally, the referral point can be also a local municipality social worker or NGOs giving
help to GBV and SEA survivors, women or children that were mentioned above.
______________________
82
Eluliin, www.eluliin.ee/en.
83
Tartu Welcome Centre, https://tartuwelcomecentre.ee/.
84
Tartu University Hospital, www.kliinikum.ee/.
85
Feministeerium, https://feministeerium.ee/.
86
Tallinn Women Crisis Centre, https://naisteabi.ee/.
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
who have experienced GBV, including SEA in Estonia
6. Results
6.1 Interviews with victim support service providers and
stakeholders
For the purpose of this study interviews were conducted with service providers and
stakeholders from municipalities, state public agencies, NGOs, medical facilities,
reception and accommodation centres for refugees and asylum-seekers, women
shelters, and the International Organization for Migration (altogether n=15). In general,
the interviewees provided positive feedback regarding the overall organization and
coordination and referral pathways of VSS in Estonia. Nevertheless, the
misunderstanding of the referral pathway system due to its complexity,
alongside with a lack of professional expertise and lack of networking, may pose
a risk to the effective provision and referral of VSS in Estonia.
Key take-aways:
1. VSS are available to all individuals who have experienced GBV, including SEA,
regardless of their country of origin, citizenship, age, gender, or cultural and
religious background. However, service providers often face communication
challenges due to language barriers. Most speak Estonian, English, or Russian,
with limited capacity in other languages. Information about services is not
always available in languages understood by survivors, and materials are often
text-heavy with minimal visual content, which can limit accessibility - especially
for those unfamiliar with local languages.
2. Some VSS providers lack an emotional and empathic mindset and/or deep
knowledge of different cultures, religious beliefs, and traditions that often
impede achievement of desired outcomes.
3. Due to limited financial resources and priorities, VSS providers have limited
opportunity to participate in the international courses or trainings, which are
based on scientific evidence to be able to learn best European practices87 in
victims’ support.
The following paragraphs present results from interviews according to the main
themes.
Theme I - Legal and Regulatory Framework
All interviewees noted that the VSS listed in Article 15(2), points 1-8 of the Victim
Support Act (see pp.25-26) of the current report), should be reviewed, clarified, and
better explained. It was pointed out that the current list does not provide sufficient
detail about the content or scope of the services. Terms such as “basic victim support
service” or “psychosocial support in the event of crisis” are not widely understood, and
______________________
European project VICToRIIA, Best Practices in Victims’ Support: referrals, information, individual assessment (VICToRIIA),
87
May 2019 https://victim-support.eu/wp-content/uploads/2021/02/best-practices-report-final.pdf.
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
who have experienced GBV, including SEA in Estonia
there is uncertainty around how the term “crisis” should be interpreted in the absence
of a clear legal definition.
It should also be noted that not all VSS listed in the Act are applicable in every case.
For instance, restorative justice services (Article 15(2), point 6) are not used in cases
involving sexual abuse within families. The use of restorative justice in domestic
violence cases is not considered appropriate and is generally not supported in
practice.88
Theme II - Availability and Accessibility of Services and Effectiveness of Referral
Pathways
Victim Support Services (VSS) are a service regulated by the Victim Support
Act89 and is available for all people in Estonia who have experienced GBV/SEA
regardless of country of origin, social status, age, religion, citizenship, etc.90 There are
no legal barriers to access the services once individual has received the legal status
of asylum-seeker or has international/temporary protection and is registered in the
national population register.91 NGOs with whom the interviews were organized
emphasized that they refer people to the VSS of SIB but do not provide these services
themselves. Although from the legal perspective, this is seen as a positive issue,
however, in practice forcibly displaced persons who have experienced GBV are
more prone to vulnerability92 due to their social and economic status, poor or
inadequate language skills as well as limited knowledge of available services and
referral pathways. Therefore, there are practical issues that need to be addressed.
First, there is some confusion among NGOs regarding the eligibility for VSS. Some
NGO representatives believe that only individuals who have reported the incident to
the police can access these services through SIB. According to SIB, however, this is
no longer a requirement since VSS are provided based on the assessment of the
individual's needs. The Tallinn Welfare and Health Care Department noted that in
cases of domestic violence, services are provided through public welfare providers
(such as AS Hoolekandeteenused) in cooperation with SIB.93 For example, when
domestic violence occurs in an accommodation centre for asylum-seekers, survivors
are offered psychological support and legal assistance. However, “legal assistance” in
this context often refers to the police initiating criminal proceedings, while survivors
may not receive broader legal support, unlike the more comprehensive systems in
______________________
88
See more debate about the restorative justice here: https://restorativejustice.org.uk/blog/using-restorative-justice-cases-
domestic-violence.
89
§ 4.(1) For the purposes of this Act, victim support means a system of victim support services organized by the state and
compensations for victims of crime. (2) For the purposes of this Act, a victim means a person who is harmed or dies as a result
of a crime, violence or event of crisis, https://www.riigiteataja.ee/en/eli/503042023004/consolide.
90
Interview with the Social Insurance Board.
91
Interview with Tallinn Welfare and Health Care Department (Tallinna Sotsiaal- ja Tervishoiuamet).
92
Interview with Tallinn Women's Crisis Centre NGO (Naiste Kriisikodu).
93
Interview with Tallinn Welfare and Health Care Department (Tallinna Sotsiaal- ja Tervishoiuamet).
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
who have experienced GBV, including SEA in Estonia
place in Nordic countries.94 Individuals with legal residence status in Estonia receive
services either through local government structures or the SIB’s VSS.95
Second, service providers often encounter challenges in communication with forcibly
displaced people due to language barriers. Most of the interviewees communicate in
three main languages: Estonian, English, and Russian. Only a few of them speak other
languages.96 Information about services is not always available in languages that the
survivors understand (except English, Russian, Estonian). Following the 2022 large-
scale arrival of refugees from Ukraine, some information is available also in Ukrainian.
The information sheets and booklets are provided in text with little visual illustrations
that might help forcibly displaced people recognize acts of violence or sexual abuse.97
It should be noted that translation services are provided for a two-year period within
the VSS. It is commonly expected that during a two-year period, the forcibly displaced
people are able to get sufficient knowledge of the Estonian language.98 The two-year
period of translation services is quite short, and some people might need more time to
deal with the case of GBV and be better integrated into society. Consequently, there
should be some other alternatives to provide translation services after the two-
year period is over.
All interviewees agreed that communication with refugees and asylum-seekers from
the Middle East has been more challenging compared to those from Russian,
Ukrainian, English, Spanish, or French-speaking countries, mainly due to the scarcity
of skilled translators proficient in languages such as Arabic, Aramaic, Farsi, or
Punjabi.99 They have also mentioned that body language and gesticulation are not
always helpful. Due to poor communication, many refugees and asylum-seekers
experience fear and mistrust towards representatives of state agencies,100 which
often leads to them rejecting the assistance offered by state authorities. The fear of
disclosing domestic violence and sexual abuse is often linked to the misconception,
that they might be deported because of contacting the police.101
Third, service providers may lack sufficient awareness, knowledge, and expertise
to effectively work with individuals from diverse cultural and social
backgrounds. They might not always recognize the differences in traditions, cultural
practices, and religious aspects among refugees from low- and middle-income
______________________
94
Interview with Feministeerium. See also G. Roosaar, 24.10.2024. ‘Estonia needs the “Yes Means Yes” model of affirmative
consent. A report from the President Kaljulaid Foundation’s Tallinn Consent Law Forum’, https://feministeerium.ee/en/estonia-
needs-the-yes-means-yes-model-of-affirmative-consent-a-report-from-the-president-kaljulaid-foundations-tallinn-consent-law-
forum/.
95
Interview with Tallinn Welfare and Health Care Department (Tallinna Sotsiaal- ja Tervishoiuamet).
https://www.palunabi.ee/et/vota-uhendust.
96
Interview with International Migration Organization (Rahvusvaheline Migratsiooniorganisatsioon)
97
Interview with International Protection Counsels.
98
Interview with the Social Insurance Board.
99
Interview with International Protection Counsels.
100
As noted by interviewees, the state authorities are repressive in many low- and middle-income countries.
101
Interview with Eluliin.
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
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countries. Many interviewees emphasized that regardless of service providers’
education level and working experience, they lack an emotional and empathic
approach and therefore face challenges in understanding survivors’ psychological
experiences102 and the underlying causes of their low self-esteem. Therefore,
consultations and services provided for people who have experienced GBV must take
their psychosocial needs into account.103
Having general knowledge about the cultural diversity, religious beliefs, and traditions
of different countries does not automatically translate into practical skills for
establishing and maintaining trust-based, mutually respectful dialogue with individuals
from diverse identities and cultural backgrounds.104 Furthermore, the identification
of domestic (family) violence and sexual abuse remains often misrecognized
unless forcibly displaced people do not share their experiences.105 The identification
of violence and sexual abuse is difficult, because the topic of domestic (family)
violence and sexual abuse is stigmatized and reporting about the violence, is often
considered to be socially unacceptable among forcibly displaced people, because it is
considered a private family matter that should remain within the household.106 In many
Eastern cultures, discussing personal or sensitive issues publicly is uncommon and is
often expressed as “Do not air your dirty laundry in public”.107 Women seeking shelter
often avoid discussions due to cultural and traditional differences, mistrust of state
agency representatives, limited language skills (e.g., illiteracy in some cases), and
financial dependence on their spouses. Domestic violence typically comes to light only
when a woman's tolerance has been exceeded.108 Available mental health services,
even when referrals are made, are often underused by forcibly displaced individuals
due to stigma, fear, and the perception of mental health as a taboo subject.109
Fourth, limited access to training based on scientific evidence leads to
misunderstandings about the challenges faced by refugees and asylum-seekers.110
With growing market demands, all specialists, especially newcomers, require regular
training before working with refugees and asylum-seekers affected by GBV.111
Interviewees emphasized the importance of training and courses to stay updated
on legal amendments, referral pathways, and to provide accurate information to
refugees and asylum-seekers. They agreed that topic-specific training (e.g., self-
help psychological training or communication skills for working with violence survivors)
is mandatory during the first year of employment, with the required number of
sessions ranging from two to five, depending on the organization. Only one
______________________
102
Interview with Tallinna Naiste Kriisikodu.
103
Interview with Tallinn Welfare and Health Care Department (Tallinna Sotsiaal- ja Tervishoiuamet).
104
Interview with Rändekeskus.
105
All interviewees.
106
Ibid.
107
See the meaning of the idiom in Merriam-Webster Dictionary, https://www.merriam-
webster.com/dictionary/air%20one%27s%20dirty%20laundry.
108
Interview with Tallinn Welfare and Health Care Department (Tallinna Sotsiaal- ja Tervishoiuamet).
109
Ibid.
110
Ibid.
111
All interviewees.
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
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organization required training certificates before employment. Topic-specific training
is typically provided internally or by local organizations. However, specialists working
directly with refugees often lack access to international networks, except for those
in medical, state, or international institutions. Barriers include the exclusivity of
professional networks, high costs of overseas training, limited funding, and insufficient
knowledge about available networks.
Compared to other West European countries, Estonia has limited experience in
working with refugees, especially it was the case prior to the Russian-Ukrainian war.112
As a result, specialists often lack insights into how institutional coordination is
organized in these countries. Beyond technical know-how (including interpretation
services used for survivors who speak languages other than Estonian, English or
Russian), understanding cultural diversity and enhancing communication skills
are crucial. Most rely on independent research and express a need for networking
opportunities to learn from European counterparts, particularly in Finland and Sweden.
One interviewee highlighted the importance of in-depth, research-based training
that incorporates real-world case studies. They suggested that such training
include problem-solving, and collaboration in mixed groups with healthcare providers,
psychologists, sociologists, and legal experts. This approach would introduce new
concepts and foster integrative thinking beyond routine practices.113
The interviewees emphasized that training and awareness-raising programmes,
campaigns about domestic violence and sexual abuse, and available VSS are
needed for the entire population in Estonia in different languages.114 Domestic
violence and sexual abuse are equally prevalent in Estonian families, particularly
during holidays and weekends. However, there is a common misconception that such
issues are more common among migrants or asylum-seekers from low- and middle-
income countries, leading to a focus on training aimed at integrating them into Estonian
society, culture, and social norms.115
Fifth, it should be clarified that service provision and referral pathways are two
separate issues. There is a need for expertise to understand their problems, identify
their needs, and assess potential threats to their health or well-being. Some
interviewees noted that cultural differences might hinder local social workers and other
specialists from fully understanding offenses committed in the name of community
honour, which are acts of violence or coercion aimed at preserving or restoring the
perceived honour of a family or community.116
______________________
112
Interview with Tallinna Rändekeskus.
113
Interview with International Protection Counsels.
114
All interviewees.
115
Interview Tartu Ülikooli Kliinikum.
116
Interview with International Protection Counsels, see more about honour crimes: https://www.britannica.com/topic/honour-
killing.
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An empathetic and perceptive individual, even without extensive professional
experience, can still deliver high-quality services. In contrast, someone lacking a
professional network may face challenges in connecting individuals to the appropriate
services at the right time. Therefore, the evaluation of effectiveness of referral
pathways depends on the professional experience and available network.117 The
average experience working in the field of interviewees was around seven to ten years,
while few have 20 years of work experience.
The interviewees from NGOs expressed concerns about limited access to and
availability of services due to restricted funding and prioritization of security in
funding allocations. Current services fail to meet all survivors' needs, and insufficient
funds make it impossible to hire additional caseworkers or specialists. As a result,
NGOs are forced to limit the time dedicated to each individual.118
Theme III - Institutional Roles and Coordination
The role of institutions ranges from providing information and assistance with legal
documentation to offering psychological counselling, medical support, and shelter for
women and children affected by GBV and/or SEA, as well as coordinating services.
While not all interviewed institutions provide VSS directly, they often refer asylum-
seekers, refugees, and other affected individuals to relevant resources. Institutional
representatives were generally aware of each other’s roles and the available
services. Although referral pathways were described as accessible, partly due to
Estonia’s small size.
Theme IV - Satisfaction and Service Quality
Most representatives of the service providers confirmed that they do not collect
feedback from refugees and asylum-seekers or people experienced GBV due to
ethical considerations and because these people usually do not come back.119
Therefore, the organizations do not have any standard feedback form. Refugees and
asylum-seekers are free to write about their experience, but they are not required.
Nevertheless, SIB has recently issued a new platform to assess satisfaction with the
VSS.120 The results of the project will be published in the coming years.
Almost all interviewees noted that migrants, refugees, and asylum-seekers often feel
uncomfortable with the healthcare booking system and long waiting times in
Estonia.121 This discomfort is not due to a lack of digital skills, but rather differences in
how healthcare is organized compared to their home countries. Many are accustomed
______________________
117
Interview with International Protection Counsels, Tallinna Rändekeskus, Tallinna Naiste Kriisikodu, International Migration
Office, Tallinn Welfare and Health Care Department (Tallinna Sotsiaal- ja Tervishoiuamet).
118
Interview Feministeerium, Eluliin, Tallinna Naiste Kriisikodu.
119
Interview with Tartu University Kliinikum and International Protection Counsels.
120
Ohvriabi, Feedback, https://www.palunabi.ee/et/tagasiside.
121
Interviews with the International Migration Office, Reception Centre for Asylum-seekers, Tallinna Naiste Tugikeskus.
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to accessing family doctors directly during walk-in hours, whereas in Estonia, non-
urgent cases often involve long waits and no direct contact with the family doctor.
Theme V - Recommendations for Improvement
All interviewees emphasized the importance of raising public awareness on GBV and
improving information dissemination to the public. Specific recommendations
received from the interviewees are outlined below:
1. Create visual information sheets with pictures and animations to make GBV
information accessible for those who cannot read or understand commonly
spoken languages in Estonia.
2. Raise awareness and understanding of GBV and cultural differences among
stakeholders, including educators at all levels. Provide training to address
biases and improve engagement, especially for those working long-term in this
field.
3. Strengthen cooperation with Nordic and Western European countries to
enhance referral pathways and identify additional services needed alongside
existing ones.
4. Avoid piloting restorative justice services in cases of sexual abuse involving
intimate partners or family members, as specialized interventions are required.
5. Encourage open discussions on GBV, especially with healthcare professionals
like general practitioners, gynaecologists, and nurses, to create a supportive
environment for survivors.
6. Revise policies for trafficking and sexual exploitation survivors to remove
barriers, such as the fear of deportation, that prevent them from reporting
crimes and seeking help.
7. Expand the number of service providers and improve service efficiency by
training new specialists to meet the growing demand for GBV support.
8. Increase funding for organizations offering support to GBV survivors, enabling
them to expand and improve their services.
9. Ensure better access to free legal counselling so survivors can effectively
navigate their situations with appropriate legal support.
6.2 Interviews with individuals holding temporary status in Estonia
For this study, online interviews were conducted with five women aged 24–55, all
holding temporary protection status and having arrived from Ukraine in March 2022.
Participants were informed of their right to skip any questions they found
uncomfortable and could withdraw at any time. Two interviewees reported experiences
of gender-based (domestic) violence. Among the group, two raised concerns about
the quality of services received upon arrival and during their stay, while one noted
issues with accessibility. Although most interviewees were generally satisfied with the
availability and coordination of services, they also shared suggestions for
improvement, which are summarized below.
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Basic information, information sharing and awareness raising in GBV and SEA
The interviewees reported that upon arrival in Estonia, they were provided with the
emergency number (112) and the family doctor consultation phone number (1220).
They confirmed that no information booklets were made available or provided
regarding the prevention or reporting of violence and sexual abuse, including
during the information days for newly arrived refugees. Information about services for
survivors of violence was only seen in the offices of PBGB and SIB. Nevertheless, the
information was not comprehensive - there was no list of VSS or instructions on
how to access them, but rather general information urging individuals to report such
incidents if they occurred. One person who had experienced GBV confirmed that
access to the VSS and women's shelter service was coordinated by the police.
Further help and services were provided by the women's shelter office. This included
translation services, assistance with reviewing rental contracts, rehabilitation services,
psychological help, and more. The interviewees suggested that there should be more
advertising within social groups (Facebook, Telegram) and information seminars
focused on GBV. These initiatives and seminars could be organized by local
governments, public authorities, or NGOs.
As mentioned earlier, interviewees emphasized that many people are unsure of
where to seek help or where to get support. Many people are reluctant to report
domestic violence due to socio-economic concerns.122 Information should be made
available in places where large groups of people gather, such as healthcare and
educational institutions, and provided in languages other than Estonian. It would be
beneficial to have a single point of access (such as a one-stop shop or libraries) where
all relevant information is available.123 Based on the interviewees' experiences,
current information is dispersed across various websites, making it difficult to
know where to look for it.
Fear of public authorities’ interference
Interviews with forcibly displaced people revealed low awareness of GBV, or
reluctance to acknowledge being survivors. One interviewee started to understand her
situation after she passed some training where mental violence was discussed.
Nevertheless, she did not turn to the police as she felt that she did not have enough
proof to justify the claim. As she did not turn to the police, she also did not get
information about the VSS from the police. She received some counselling from her
doctors from Ukraine. She contacted the psychologist and psychiatrist in Ukraine and
got assistance online. She attempted to handle her situation on her own, fearing that
seeking help from the local government's social worker might lead to her children
being taken away.
______________________
122
Interview with the immigrant on 16 January 2025.
123
Interview 17.01.2025.
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These findings also confirm the findings of the SEIS study that “according to the
respondents, the main barriers that people who have been subjected to GBV could
face when trying to access GBV services would be the following: Stigma and shame
(46 per cent); Lack of awareness (31 per cent); Language and cultural barriers (23 per
cent); Lack of trust in host country services (20 per cent); Fear of retaliation (18 per
cent); Discrimination and bias (14 per cent); Financial constraints (8 per cent);
Inadequate service availability (8 per cent); Lack of trained professionals (4 per cent);
Legal and institutional barriers (2 per cent), etc.”124
Services
To support recovery from war-related trauma and/or experiences of GBV, a more
holistic and person-centred approach is needed. According to interviewees, services
are generally delivered in the same way to all individuals, regardless of whether they
arrived as forcibly displaced persons, students, or for business purposes. In practice,
this means services mirror those offered to the local population, without consideration
for migration background. Despite the widely acknowledged understanding that “one
size does not fit all”, the current system does not adequately address the specific
vulnerabilities and needs of refugees. One interviewee mentioned that no one asked
what they needed. As a result, there are no services specifically tailored for refugees.
Satisfaction with received services
Individuals who experienced GBV expressed high satisfaction with VSS they
received in Estonia. Nevertheless, more efforts are needed to provide psychological
services. Survivors of GBV are vulnerable and have barriers to open themselves to
foreign people and share private issues.
______________________
124
UNHCR, 2024 Estonia Socio-Economic Insights Survey, https://microdata.unhcr.org/index.php/catalog/1222/, p.17.
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7. Conclusion
This chapter presents the main findings on the accessibility, availability, and
effectiveness of VSS and referral mechanisms. The research questions are addressed
in a structured and consistent manner.
The analysis indicates that the status and rights of survivors have been amended in
the Code of Criminal Procedure. In Estonia, equal treatment is guaranteed by the
Constitution, the Equal Treatment Act, and the Gender Equality Act. These legal
frameworks ensure access to VSS for all individuals in Estonia, regardless of their
social status. The Victim Support Act, including the definition of a victim, has been
revised to align with EU Directive 2012/29/EU, which establishes minimum standards
for the rights, support, and protection of victims of crime, replacing Council Framework
Decision 2001/220/JHA.
In Estonia, VSS are state-funded and available nationwide. They are typically located
within or near police stations, similar to the practice in other European countries such
as Belgium, Finland, Sweden, and the Netherlands. Effective cooperation and referral
pathways between institutions contribute to the protection of survivors and support the
enforcement of their rights. The following paragraphs present responses to the
research questions.
RQ1: What changes in domestic legislation or social welfare organizations are
needed to ensure equal access to VSS for forcibly displaced people?
Access to VSS is available to all individuals residing in Estonia, regardless of their
social or economic status. Interviewees confirmed that socio-legal status is not
considered a barrier to accessing necessary support services. The provision of VSS
is based on an assessment of the survivor’s needs, typically carried out by a specialist.
While specialists are expected to have the appropriate knowledge, skills, and
professional behaviour, the assessment process remains partly subjective. What is
considered appropriate support for a survivor may not always align with their actual
needs or experiences.
The need for psychological support is assessed by victim support officers using
specific tools, such as a structured questionnaire. In the Vao and Vägeva
Accommodation Centres, psychological support is available on site, while other
centres refer individuals to external psychologists or psychiatrists. In cases of repeated
domestic violence, the MARAC model is applied to coordinate responses across
relevant institutions.
RQ2: Does Estonian legislation regulate the prevention of and response to
violence, including GBV?
The prevention of and response to violence is regulated in the Victim Support Act and
by criminal law provisions. Nevertheless, the prevention of violence might be better
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
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regulated in national school curricula. The provisions of domestic and sexual violence
can be highlighted better in the legal norms.
RQ3: What referral pathways exist and have been implemented to guide
individuals who have experienced GBV to VSS services? Are these services
comprehensive, effective, timely, and accessible?
Seeking help can begin in different ways, with one option being to turn to the police,
who then guide survivors to VSS. However, in many cases, social services or NGOs
serve as the initial point of contact, providing survivors with immediate support and
referrals to relevant services. Organizations providing VSS collaborate with NGOs and
other service providers to ensure survivors receive comprehensive assistance tailored
to their needs. The VSS are provided by the SIB and are available in all counties of
Estonia. If needed, survivors can receive support from doctors and psychologists, legal
counselling, shelter for up to six months, and employment counselling. The full list of
services is outlined in the Victim Support Act. Doctors can also refer their patients to
the VSS.
The interviewees gave positive feedback about the services they received. Most
complaints were related to limited accessibility and long waiting times for family
doctors or specialized medical care. Interviewed individuals were not accustomed to
waiting for an appointment with a general practitioner (GP) and expected to be seen
by a doctor on the same day. Overall, the VSS services were perceived as being
delivered professionally.
RQ4: How is the coordination between these institutions organized to ensure
that individuals who have experienced GBV receive comprehensive and
effective support?
A list of organizations and NGOs supporting individuals who have experienced GBV
is provided in Annex 1 of the study. Based on interviews with various service providers,
it appears that they are generally well-informed about the services offered by other
actors in the field. Opportunities for joint training have been available, and there is
ongoing communication between different NGOs and SIB’s VSS.
The referral mechanism between the police and VSS is well established, supported by
the presence of victim support staff in police stations, formalized procedures for
handling domestic violence cases, and close working relationships between police
officers and victim support personnel. While medical professionals and institutions are
not formal members of the MARAC network, they often refer high-risk survivors and
help identify cases involving sexual abuse and violence. However, interviews revealed
that health institutions are not fully integrated into the broader referral system, which
may limit coordination and continuity of care for survivors. Additionally, the Ministry of
Social Affairs has issued guidelines for handling cases involving trafficking survivors,
which can be used by caseworkers.
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RQ5: What roles do various institutions and actors (e.g., social support
services, healthcare, law enforcement, NGOs) play in providing support for
individuals who have experienced GBV?
The VSS also provides guidance to specialists such as doctors, social workers, and
teachers. VSS offers various training programmes, including psychological first aid,
support for survivors of hate crimes and human trafficking, as well as counselling and
access to essential training and learning resources.
The current research indicates that information about available services can be found
on the websites of relevant agencies and NGOs. However, there may be challenges
in accessing specialized healthcare due to long waiting times and language barriers,
particularly if the survivor does not speak Estonian, English, or Russian as their native
language. The referral standards can be clearer and more visible. Furthermore,
coordination between different institutions can be improved to ensure protection
standards for refugees and asylum-seekers.
RQ6: How are individuals (who have experienced GBV) informed about relevant
social support services, and what are the primary sources of information for
forcibly displaced people?
The study confirmed that information is also disseminated through social media and
shared among survivors via personal contacts. For example, when individuals seek
help from NGOs such as the ERC or EHRC, they are referred to the VSS of SIB if
needed. Some services are also provided by the medical professionals working in the
crisis help centres (Kriisiabi).
The role of local governments and social workers is crucial in identifying issues faced
by GBV survivors, particularly among refugees. For asylum-seekers and residents of
asylum reception centres, access to information is better ensured, as details about
available services are provided in both written and oral formats. Reception centres
have also dedicated information boards where relevant details can be posted. In
contrast, individuals living outside reception centres often rely on online sources or
social media platforms such as Telegram, Facebook, TikTok, and Instagram to access
information. This research confirms the results of the study Developing Directive-
Compatible Practices for the Identification, Assessment, and Referral of Victims:
National Report, Estonia125 conducted by the Institute of Baltic Studies in 2017. The
studies conclude that referral pathways function effectively if there is a strong network
of specialists.
During the data collection process for this study, available services and referral
mechanisms were identified and described above. In Estonia, all essential VSS -
including healthcare, psychological support, safety, security, and access to justice -
______________________
125
Maarja Vollmer, Anna Markina, Developing directive-compatible practices for the identification, assessment and referral of
victims, 2017, https://www.ibs.ee/en/publications/developing-directive-compatible-practices-for-the-identification-assessment-
and-referral-of-victims/.
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are available for refugees, asylum-seekers, and stateless persons who have
experienced GBV. These services are provided by the SIB, hospitals, family doctors,
psychologists, psychiatrists, and specialized NGOs.
There is close cooperation between the police and VSS, as victim support workers are
stationed in police buildings. Women’s shelters collaborate with child protection
services and NGOs that provide legal assistance and psychological support. This
system is well-established and generally considered effective.
RQ7: What legal, practical as well as organizational and administrative barriers
do individuals, who have experienced GBV, face in accessing VSS in a timely
and adequate manner?
It was identified that certain legal gaps exist, as service providers are unclear about
the exact content of services and the definition of a “crisis situation”. While the names
of VSS are listed in VSA, neither their specific scope nor meaning are clearly defined.
The confusion among providers results in a situation where services might not be
referred.
Interviews revealed that many refugees are unaware of their rights, where to seek
services, or to whom to turn in case of a need. They often do not know that they are
entitled to assistance and financial compensation for damages. Additionally, not all
individuals understand the meaning of GBV, the level of societal tolerance for such
acts, or the local values that protect survivors.
According to interviewees, information about available services is too scattered and
not easily accessible for those in need. It was suggested that information on GBV
should be displayed in locations where people frequently visit, such as doctors'
surgeries, SIB offices, libraries, bus stations, public spaces, cinemas, and buses.
Moreover, it would be beneficial to provide informational materials and visual
explanations in places where people spend extended periods, such as medical waiting
rooms, cafeterias, and shops.
Language barriers were also highlighted as a significant concern. Limited proficiency
in Estonian places vulnerable individuals in a more difficult position, as it can restrict
access to essential information and hinder communication with service providers.
Additionally, poor knowledge of Estonian creates obstacles in the job market,
particularly for positions that require fluency in the language.
RQ8: Are forcibly displaced people, who have experienced GBV, satisfied with
the accessibility and quality of the services provided? If not, what were the
primary reasons for limited or inadequate support?
The satisfaction rating among the interviewed individuals was very high. It was
suggested that having a designated platform, such as a website or a feedback post
box, would allow individuals to share their opinions about the services, participate
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
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actively, and respond to issues as they arise. Additionally, the efficient processing of
asylum applications and the prompt issuance of documents were highly appreciated.
Specific recommendations are provided in the sub-section ‘Results II: Interviews with
Individuals Who Experienced GBV’.
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8. Recommendations
During the last decade, Estonia has made remarkable progress in preventing,
mitigating risks, and responding to gender-based violence (GBV). The country has
dedicated significant efforts and resources to enhance its policies, legislation, and
practices. Notably, forcibly displaced and stateless persons have been integrated into
the state protection system ensuring access to GBV-related support and services on
the same footing as citizens. Despite the resources allocated by the state and the well-
established services provided through victim support services, certain refugee-specific
aspects should be considered. These include enhancing awareness in various
languages, improving safe and meaningful access for forcibly displaced and stateless
persons to available services, and ensuring efficient survivor-centered support. Based
on the study, the following recommendations are proposed:
Strengthening the survivor-centered approach
To ensure the effective provision of GBV support services, it is crucial to consistently
apply a survivor-centred approach. This approach should be grounded in voluntary
and informed consent, while also considering the cultural, religious, and diverse
backgrounds of forcibly displaced and stateless persons. Engaging with refugee
communities to raise awareness about GBV and and how to tackle the problem. The
importance of a survivor-centered approach is essential in creating a supportive
environment for survivors.
Elaborating on the types, scope, and duration of GBV services
Detailed instructions on the types, scope and duration of GBV support will facilitate
awareness raising, reduce uncertainties and ensure that forcibly displaced and
stateless individuals understand their rights and the assistance they can expect.
Asylum-seekers and refugees often need one-on-one counselling and individual
support with referrals. They can face specific issues related to their legal status,
documentation, and asylum procedures. Therefore, it is crucial for them to have timely
access to legal counselling and the assistance of a qualified lawyer. The development
of clearer guidance on handling non-violent forms of GBV, recognizing the needs of
specific groups such as older people, persons with disabilities, and unaccompanied or
separated children is essential. Additionally, staff working with these groups should
receive appropriate and continuous training. Furthermore, improved case
management and easy-to-understand support materials, developed with feedback
from forcibly displaced and stateless persons, would be valuable additions to the
system.
Enhancing access to interpretation services
Interpretation services should be more flexible in case a long-term need for this service
is identified. The current two-year standard period may not be sufficient for forcibly
displaced and stateless persons as some of them may require more time to resolve
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Study on the assessment of the existing referral pathways for forcibly displaced and stateless people
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their problems and continuous support will ensure their access to services. Alternative
options for accessing assistance in the Estonian language after this period ends could
be explored, such as services offered by volunteers or NGOs, provided they receive
sufficient funding.
Improving national legislation
To enhance the national legal framework, it is important to consider amending sections
§§ 141, 1411, and 143 of the Penal Code of Estonia to fully align with Article 36 of the
Istanbul Convention. These amendments should ensure that sexual acts are based
on voluntary consent and allow for punishment even in the absence of physical force
or threats.
Enhancing access to information
Ensuring that GBV support services are accessible to all survivors, including those
from diverse backgrounds, requires more attention to providing information in multiple
languages and considering cultural, religious and other diversity and sensitivities.
Language barriers remain a challenge, as most service-related information is available
only in Estonian, English, or Russian, limiting accessibility for those who do not speak
these languages. Information is often text-heavy with limited visual content, making it
difficult for some individuals to understand. While the police website offers some
materials, including videos and leaflets, they are primarily available in Estonian.126
Visually engaging informational materials, such as leaflets, posters with clear visual
content, and short video clips, should be developed for use by social workers, police,
and other professionals during client interactions. These materials should explain
unacceptable types of violence and where individuals can seek help.
Modernizing information dissemination
The study revealed that traditional information channels - such as television, radio,
newspapers, and leaflets - are becoming less effective. While some interviewees
initially recommended increasing TV and radio outreach, they later acknowledged that
they primarily consume content on platforms like Netflix, YouTube, and social media.
Public awareness campaigns could benefit from adapting to these changing habits,
recognizing that different generations access information through different channels.
Additionally, utilizing trusted community channels, such as local Facebook groups and
other social media groups, to share information and exploring innovative methods for
information dissemination might ensure broad, effective and inclusive outreach across
all demographic groups. Furthermore, bus stops and public transportation could be
used for broader dissemination of information and raising awareness about GBV
definitions, available services, and protection mechanisms. Further study can be
considered to clarify the commonly used media channels and social groups.
______________________
126
Police and Border Guard Board, Prevention Projects and Campaigns, www.politsei.ee/et/juhend/ennetusprojektid/ahistava-
jalitamise-kampaania.
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Strengthening capacity development of all stakeholders
Sustainable and continuous GVB capacity development programme is crucial due to
evolving needs and personnel turnover, ensuring staff are equipped to handle various
forms of violence, including psychological, sexual, and financial abuse. Interviewees
from both service providers and NGOs emphasized that despite existing trainings and
available information, there is an ongoing need for comprehensive training for all
stakeholders, including service providers and survivors. These trainings should cover
GBV definitions, effective response strategies, referral pathways, culturally sensitive
support methods, interview techniques, survivor-centred approach, and refugee
protection standards. Online training modules should be integrated into regular
capacity-building programmes for both new and experienced staff, updated regularly
to reflect current good practices.
Enhancing partnership, collaboration and coordination
Fostering stronger partnerships among stakeholders will contribute to more effective
prevention and response measures. While authorities have established collaboration
with service providers and women's support organizations, broader partnerships
among service providers, civil society organizations working with specific groups, UN
agencies, women and refugee-led organizations, and refugee communities, can
enhance the effectiveness of services and raising awareness campaigns and avoid
duplications. Regular coordination meetings to strengthen capacity, facilitate
collection, exchange, and dissemination of data, and share good practices, technical
knowledge, and experiences of forcibly displaced and stateless persons, can
significantly improve service provision, facilitate communication and optimize resource
allocation.
Ensuring allocation of adequate resources for service providers
Considering that women’s centres play a key role in providing shelter and support,
they require adequate resources and attention to effectively assist asylum-seekers
and refugees. Additionally, NGOs providing specialized assistance and refugee-led
organizations offering services to vulnerable groups should be also engaged and
supported. The state funding should cover provision of services, capacity
development, and infrastructure support.
Strengthening of monitoring and evaluation
While the study findings show some improvements in collecting feedback from GBV
survivors, there is still a need to implement robust monitoring and evaluation
mechanisms to assess the effectiveness of the survivor-centered approach. Regularly
seeking feedback from survivors is crucial for understanding their needs and
experiences. This feedback should be systematically used to continuously refine and
enhance services, ensuring they remain truly survivor centered.
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who have experienced GBV, including SEA in Estonia
www.sotsiaalkindlustusamet.ee/spetsialistile-ja-koostoopartnerile/ohvri-abistajale (27
December 2024).
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2025).
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Conducted interviews:
Interview with person holding temporary protection, 03.01.2025.
Interview with person holding temporary protection, 10.01.2025.
Interview with person holding temporary protection, 16.01.2025.
Interview with two persons holding temporary protection, 17.01.2025.
Interview with the Social Insurance Board, 20.12.2024.
Interview with International Protection Counsellors,14.11.2024.
Interview with MTÜ Eluliin, 19.11.2024.
Interview with Feministeerium, 21.11.2024.
Interview with Tallinn Welfare and Health Care Department (Tallinna Sotsiaal- ja
Tervishoiuamet), 22.11.2024.
Interview with Tallinna Rändekeskus, 15.11.2024.
Interview with Tallinna Naiste Tugikeskus (Women Support Centre), 14.11.2024.
Interview Tartu Ülikooli Kliinikum, 15.11.2024.
Interview the International Migration Organization Office in Tallinn, 20.11.2024.
Interview Reception Centre for Asylum-seekers, 19.11.2024.
Interview with Eesti Naiste Varjupaikade Liit, 15.11.2024.
Interview with Human Rights Centre in Tallinn, 19.11.2024.
Estonian Refugee Council, 18.11.2024.
Tartu Välismaalaste Teenuskeskus 22.11.2024.
Family doctor 15.11.2024.
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Annex I - List of organizations and people contacted
No ORGANIZATION CONTACT INFORMATION
1 Estonian Refugee Council (MTÜ Eesti Pagulasabi) www.pagulasabi.ee
2 Social Insurance Board (Sotsiaalkindlustusamet) www.sotsiaalkindlustusamet.ee
4 Estonian Human Rights Centre (Eesti Inimõiguste https://humanrights.ee/en/
Keskus)
5 Women Support and Information Centre (MTÜ https://naistetugi.ee/
Naiste Tugi-ja Teabekeskus) Tallinna Naiste
[email protected]
Tugikeskus, Eesti Naiste Varjupaikade Liit
[email protected]
6 International Organization of Migration
[email protected]
(Rahvusvaheline Migratsiooniorganisatsioon) Tel.: +372 611 6088
7 Tallinn Women's Crisis Centre NGO (Tallinna
[email protected]
Naiste Kriisikodu) https://naisteabi.ee/
8 Reception Centre for Asylum-seekers
[email protected]
https://www.politsei.ee/et/juhend/rahvus
vaheline-kaitse/kasulikud-kontaktid
9 The International Protection Advisers at the Police
[email protected]
and Border Guard Board
10 Ministry of Social Affairs (Sotsiaalministeerium)
[email protected]
11 Life Line (MTÜ Eluliin) https://www.tallinn.ee/et/teenused/kriisi
abi-noustamine
12 Tallinn Migration Centre (Tallinna Rändekeskus) https://www.tallinn.ee/et/randekeskus/ta
llinna-randekeskus
13 Tartu Welcome Centre (Tartu Välismaalaste https://tartuwelcomecentre.ee/
Teenuskeskus)
17 The Estonian Society of Family Doctors (Eesti
[email protected]
Perearstide Liit)
[email protected]
18 The Estonian Society for Psychologists
[email protected]
(Eesti Psühholoogide Liit)
19 Estonian Association for Cognitive Behaviour
[email protected]
Therapy (Eesti Kognitiivse Käitumisteraapia
Assotsiatsioon)
20 Estonian Gynaecologists Society(Eesti
[email protected]
Naistearstide Selts)
21 Estonian Patients Union (Eesti Patsientide Liit)
[email protected]
22 NGO My space (MTÜ Oma tuba, Feministeerium) MTÜ Oma Tuba, Telliskivi 60a/3,
Tallinn, 10412
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[email protected]
23 NGO MONDO
[email protected]
24 President Kaljulaid Foundation(President Kaljulaid
[email protected]
Fond)
25 Tartu University Hospital (Tartu Ülikooli kliinikum) Gynaecologist
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Annex II – TAI permission
57
Soolist vägivalda kogenud sunniviisiliselt ümberasunud ja kodakondsuseta
inimeste olemasolevate suunamisteede hindamine
Taust ja eesmärk
Selles uuringus hinnati Eestis soolise vägivalla (SV), sealhulgas seksuaalse ärakasutamise ja
kuritarvitamise (SEA) kogenud sunniviisiliselt ümberasunud ja kodakondsuseta inimeste suunamisteede
tõhusust, kättesaadavust ja koordineerimist. Eesmärk oli tuvastada takistused ja
parandamisvõimalused , et tagada soolise vägivalla ohvritele õigeaegsed ja asjakohased tugiteenused.
Sooline vägivald Eestis
• 2023. aastal registreeriti Eestis 7 012 vägivallakuritegu, millest 3 186 olid perevägivalla juhtumid,
mis moodustab 45% kõigist vägivallakuritegudest.
• Vaatamata olemasolevatele teenustele ei otsi märkimisväärne hulk SV ohvritest abi, viidates
häbimärgistamisele, keelebarjäärile, teadlikkuse puudumisele ja hirmule võimude ees.
• 289 potentsiaalset inimkaubanduse ohvrit said riikliku abitelefoni kaudu toetust; ainult 5%
registreeritud vägivallajuhtumitest olid seksuaalkuriteod.
Joonis 2. Ukraina põgenike teadlikkus soolise
vägivallaga seotud teenustest (SEIS, 2024)
Joonis 1. 5 peamist takistust SV teenustele
juurdepääsul Ukraina pagulaste seas (SEIS,
2024)
Uuringu metoodika
• Uurimuslik juhtumiuuring, mis kombineeris dokumendianalüüsi, õigus- ja poliitikaraamistiku
ülevaadet ning empiirilisi andmeid.
• 15 intervjuud sidusrühmade esindajatega (riigiasutused, MTÜd, teenusepakkujad).
• 5 individuaalintervjuud ajutise kaitse all olevate naistega.
Peamised järeldused
• Suunamisteed on loodud ja toimivad, kuid teabe killustatus ja piiratud asutustevaheline
koordineerimine võivad vähendada nende tõhusust.
• Teenused on kättesaadavad kõigile SV ohvritele, olenemata nende õiguslikust seisundist.
Praktiliste takistuste hulka kuuluvad aga järgmised:
o Keelepiirangud (teenused ainult eesti, inglise, vene keeles).
o Kultuurierinevustest tingitud arusaamatused ja vähene traumateadlikkus tugipersonali
seas.
o Usaldamatus institutsioonide vastu ja hirm väljasaatmise ees pagulaste seas.
o Pagulaste vähene teadlikkus oma õigustest.
o MARACi mudel (Multi-Agency Risk Assessment Conference) on kõrge riskiga juhtumite
puhul peamine vahend, kuid nõuab laiemat institutsionaalset osalust.
Soovitused
1. Parandada mitmekeelset juurdepääsu, tagades, et teave on kättesaadav mitmes keeles, ja
töötada välja visuaalsed, mittetekstipõhised materjalid.
2. Tõhustada ohvrikeskseid lähenemisviise, mis põhinevad vabatahtlikul ja teadlikul nõusolekul,
võttes samal ajal arvesse ka sunniviisiliselt ümberasunud isikute kultuurilist, religioosset ja
mitmekesist tausta.
3. Parandada SV ohvrite juurdepääsu suulise tõlke teenustele ja õigusabile.
4. Tugevdada institutsioonidevahelist koostööd ja teabevahetust, et hõlbustada integreeritud
toetusraamistikke.
5. Investeerida pikaajalisse erialakoolitusse (eelkõige kultuuritundlikkuse koolitusse) ja tagada pidev
juurdepääs rahvusvahelistele parimatele tavadele.
6. Käivitada SV ja suunamisteede teadlikkuse tõstmise kampaaniad, mis on suunatud nii
ümberasunud elanikkonnale kui ka avalikkusele.
7. Rakendada tugevaid seire- ja hindamismehhanisme, et koguda tagasisidet SV-ohvritelt ja hinnata
ohvrikeskse lähenemise tõhusust.
Autorlus:
Uuringu viisid läbi: Prof. Lehte Roots ja Dr. Melita Sogomonjan
Tellija: UNHCR Põhjamaade ja Baltimaade esindus
Kuupäev: märts 2025
Kontaktisik: Mariia Khrapunenko,
[email protected] | Tel. +372 5631 1239