Premise

Gender-based violence, including domestic violence, is recognised as a serious violation of human rights, particularly against women. This is clearly established in the Council of Europe Convention on Preventing and Combating Violence against Women and Domestic Violence — known as the Istanbul Convention — and reaffirmed by earlier international instruments, such as the 1995 Beijing Declaration and Platform for Action, the United Nations Convention on the Elimination of All Forms of Discrimination against Women (CEDAW, 1979) and its Optional Protocol (1999), as well as CEDAW General Recommendation No. 19 on violence against women. With Law No. 77 of 27 June 2013, Italy became one of the first European countries to ratify the Council of Europe Convention on Preventing and Combating Violence against Women and Domestic Violence, adopted in Istanbul on 11 May 2011 and entered into force on 1 August 2014. Italy had previously signed the Convention on 27 September 2012. This is the first legally binding international instrument to establish a comprehensive and integrated regulatory framework for the protection of women against all forms of violence. It specifically addresses domestic violence, which affects not only women but also other individuals, such as children and the elderly, who are entitled to the same protective measures. The Convention is structured around the “three Ps”: prevention, protection and support for victims, and prosecution of perpetrators. A fourth “P” is often added to these — that of integrated policies — with the aim of responding effectively to a phenomenon marked by considerable complexity and multiple contributing factors.

The second “P”, protection and support for victims, encompasses the work of Anti-Violence Centres (CAVs), which are facilities that assist women who are experiencing or at risk of any form of violence. CAVs offer a range of services to victims of domestic violence, psychological abuse, sexual violence, stalking, and economic abuse. These services include telephone support, one-to-one counselling, and legal advice, but most crucially, access to so-called “safe houses” — secure, undisclosed locations offering shelter to women and their children fleeing violent situations, thereby enabling them to escape domestic abuse.

The situation in Belluno

In the province of Belluno — the largest in the Veneto region by surface area and the least populated in terms of demographics¹ — there is a single Anti-Violence Centre, operated by Belluno Donna Onlus² and staffed by adequately trained volunteers.

The association manages three type B shelters: Casa Belluno-Donna (in operation since 2009), Casa Silvia (since 2020), and Casa Maria Grazia (since 2025). These shelters offer accommodation to women who seek support from the Centre as victims of violence, particularly those facing housing instability, unemployment, or economic hardship, and who are not in immediate physical danger.

The accommodation provided is not linked to emergency situations but offers medium-term stays, aimed at helping women and their children move away from violent environments. All shelters are managed and coordinated by a working group comprising the manager, a designated contact person, and volunteer staff. Support workers visit the shelter weekly, with the timing adapted to the needs and availability of the women and children staying there. This approach is intended to provide assistance, foster relationships among the guests, monitor the smooth functioning of communal life, and ensure that rules are respected — all while minimising interference in their private lives.

Given the capacity of the shelters, the period of accommodation granted to women and their children typically ranges from six to twelve months. Their privacy and confidentiality are strictly guaranteed. It is important to note that the service operates on a voluntary basis. To date, it has been made possible through public funding provided by the Veneto Region, the Province of Belluno, and several local municipalities. Specifically, the voluntary structure means that the CAV can be reached by telephone only at designated times of the day, during which volunteers take turns to ensure availability and provide support.

Regulatory news 

The Belluno Donna Onlus Anti-Violence Centre (CAV) has been placed at risk by a recent decision taken at the State–Regions Conference. During the meeting held on 14 September 2022, a note dated 2 September 2022 was approved, in which the Department for Equal Opportunities of the Presidency of the Council of Ministers submitted a draft amendment to Agreement No. 146/CU of 27 November 2014, concerning the minimum requirements for anti-violence centres and shelters. Of particular concern is Article 2, paragraph 2, which sets out a stringent requirement³: the provision of a dedicated telephone line, active 24 hours a day. Needless to say, such a standard is extremely difficult to meet for a small centre run entirely by volunteers, who cannot ensure round-the-clock availability every day of the year, including holidays.

The complaint

Flavia Monego, Equality Councillor for the Province of Belluno, responded promptly to the issue. She wrote to all municipalities in the province, urging them to sign a joint appeal to the Veneto Region, requesting a derogation from the Agreement. The aim is to enable the Belluno CAV to continue operating and to retain access to regional funding, despite its inability to meet the newly established minimum requirements. “The greatest obstacle is the requirement for 24-hour availability, which is unfeasible for a volunteer-based organisation and risks undermining the service, to the detriment of women who are victims of violence,” emphasised Flavia Monego, who requested an exemption from the minimum requirements for Belluno in light of its mountainous geography. Thanks in part to the public attention generated by the Equality Councillor, the Unified Conference of the Conference of Regions decided in January 2024 to postpone the implementation of the new minimum standards for CAVs. However, this 18-month extension will expire on 30 June 2025.

The risk

To date, there has been no further news of extensions or amendments to the text of the State–Regions Agreement. As a result, the issue remains unresolved, and the future of the Belluno CAV remains at risk. “Great social achievements arise from daily commitment, small steps, and the cooperation each of us can contribute. The major objective we are pursuing today is to ensure protection for the Belluno Anti-Violence Centre, managed by Belluno Donna,” wrote Equality Councillor Flavia Monego in a letter to the Veneto Region at the beginning of the year. “The issue of minimum requirements for CAVs must be resolved once and for all. June is fast approaching, and we cannot — and must not — let our guard down: the quality of life of women, and of the communities in which they live, is at stake.”

The fight against gender-based violence as a business?

This is by no means intended as a provocation. The issue at hand is not solely about better structuring the response to gender-based violence, although that remains a vital and noble objective. The real danger lies in the risk that the new requirements will dismantle years of volunteer-led management of CAVs. The situation in Belluno is not an isolated case in Italy.

These changes could open the door to those seeking to turn the response to gender-based violence into a business — an approach that is unworkable in a small, sparsely populated, and geographically dispersed province such as Belluno. The inevitable outcome would be the loss of a fundamental resource and an essential service for women.