VOA-GNY Testifies at City Council Health Committee Hearing on Legislation To Train First Responders on TBI in Domestic Violence Survivors
New York, NY, June 26, 2025 — Today, Council Majority Leader Amanda Farías‘ legislation Intro 29 was heard before the Committee on Health. Developed through partnership with Volunteers of America–Greater New York (VOA‑GNY), this bill would require specialized training for first responders to properly identify and address traumatic brain injuries (TBIs) among survivors of domestic violence.
“Domestic violence often leaves invisible scars,” said Majority Leader Farías. “Intro 29 seeks to equip our first responders with the necessary tools to identify and support survivors suffering from traumatic brain injuries, ensuring they receive the care and understanding they deserve.”
Intro 29 builds on a pioneering 2022 pilot by VOA-GNY and Safe Living Space, where screening over 400 shelter residents revealed that over 57 percent reported head or neck injuries suggestive of TBIs.If enacted, the bill would mandate training on the pervasiveness of TBI amongst survivors of domestic violence, identifying TBI symptoms, understanding the long-term health impacts linked with repeated cases of TBI, and responding appropriately. Additionally, Intro 29 would require a citywide public awareness campaign led by the Department of Health and the Mayor’s Office to End Domestic and Gender-Based Violence.
“Traumatic brain injuries are a silent epidemic among domestic violence survivors, and far too many go undiagnosed and unsupported,” said Noelle Withers, Chief Program Officer for Volunteers of America–Greater New York. “Through our pilot program, we saw firsthand how pervasive these injuries are — and how transformative the right training can be. Intro 29 is a vital step toward making sure no survivor falls through the cracks simply because their injuries aren’t visible. We thank Majority Leader Farías for her leadership and urge the Council to pass this bill without delay.”
During the hearing, medical and trauma experts emphasized that untreated TBIs can result in misdiagnosis, criminalization, PTSD, chronic pain, cognitive impairment, and other long-term health complications, especially when symptoms are overlooked.
“Traumatic brain injuries can have devastating and lifelong consequences, but they’re often misread as behavioral issues or mental illness, especially in survivors of domestic violence,” said Dr. Edie Zusman, CEO of Safe Living Space and a board-certified neurosurgeon and national expert on TBI. “Without the right training, first responders may miss the chance to intervene early, leading to worse health outcomes and increased risk of re-traumatization. This legislation represents a critical shift toward evidence-based, trauma-informed care in New York City.”
The hearing featured powerful testimony from advocates, survivors, and health professionals, highlighting widespread support and confirming that proper training can transform response, save lives, and elevate care standards. Today’s proceedings reaffirm Intro 29’s vital role in enhancing domestic violence response protocols. With strong backing from survivors, advocates, health professionals, and elected officials, this legislation represents meaningful progress toward trauma-informed public safety in New York City.
“This bill serves as an important legislative first step in the vital effort to bring awareness to the connection between domestic violence and traumatic brain injury, improve services for survivors, and equip them with the information they need to seek care and get back on their feet. Detecting these injuries earlier in a survivor’s journey will allow us to better tailor services to meet their needs and help them confront the impacts of the brain trauma to support their healing,” said Catherine Trapani, Assistant Vice President for Public Policy for Volunteers of America-Greater New York.
“Domestic violence survivors deserve comprehensive care that addresses all aspects of their trauma, including the often-overlooked traumatic brain injuries that many experience. Introduction 29 represents a crucial step forward in ensuring first responders have the training they need to recognize these signs early and connect survivors to appropriate support services. I’m grateful to Majority Leader Amanda Farías for her leadership on this vital legislation and proud to lend my support to this important effort,” said Council Member and Chair of the Committee on Women and Gender Equity, Farah Louis.
“Int. 29 is a crucial step toward recognizing the full scope of harm that domestic violence causes, not only emotionally, but also neurologically. Survivors deserve to be treated with dignity, which begins when first responders are trained to recognize domestic violence-related traumatic brain injuries,” said Council Member Julie Won. “These injuries are often invisible, but their impacts are life-altering. By mandating TBI training for first responders and frontline providers, we’re sending a strong message that our city values trauma-informed care and believes in meeting survivors with compassion, not judgment. I am honored to stand alongside Majority Leader Farías in advancing this critical legislation to protect and uplift survivors across New York City.”
“We need all of our uniformed and non-uniformed service providers to be properly trained in assessing the signs of brain injuries in domestic violence survivors. Providing relevant support to people facing a wide variety of crises is key to true community safety. I’m proud to support Intro 29, sponsored by Majority Leader Farías to require TBI training for NYPD, FDNY, EMS, and other service providers,” said Council Member Alexa Avilés.
“Domestic violence survivors have lived through some of the most traumatic moments of their lives both emotionally and physically. The passage of Majority Leader Farías’ Intro 29 will allow them to have a new lease on life and begin their path to recovery by ensuring that all first responders are equipped with the knowledge to assess and address traumatic brain injuries,” said Council Member Sandy Nurse.
“This bill empowers first responders to do the most essential part of their job — save lives,” said Council Member Susan Zhuang. “The road to recovery for domestic violence survivors is a winding one and as our medical experts learn more about how we can smooth over some of bumps along the way, it is our responsibility as law makers to provide our emergency responders the information and training to save survivors. It’s a common sense and life saving bill I’m proud to sponsor.”
“As a City, we can’t afford to overlook the invisible injuries survivors carry. Traumatic brain injuries are far more common in cases of domestic violence than most people realize — and too often, they go undiagnosed and unsupported. This bill is about meeting survivors with real care. By training our first responders and frontline workers to recognize the signs of TBI, we’re not just improving response — we’re giving survivors a better chance at healing, safety, and long-term support,” said Council Member Nantasha Williams.
“Survivors of gender violence suffer so many harms that are not readily visible, such as emotional abuse, economic abuse, and sexual abuse,” said Hon. Judy Harris Kluger, CEO of Sanctuary for Families. “One of the most insidious is traumatic brain injury (TBI), a hidden injury that can be debilitating. Intro 29 will ensure that first responders have the tools they need to recognize signs of TBI so that survivors can get the care they need. We applaud Council Majority Leader Amanda Farias for her leadership on this issue and urge the City Council to pass Intro 29. We must bring TBI out of the shadows and into the light.”
“Survivors of intimate partner violence have been suffering invisibly from traumatic brain injuries for far too long — in estimations, more than 70% of survivors experience TBIs from abuse including strangulation, violent shaking, blows to the head, or being pushed into the furniture/walls. Most of which goes unreported because neither the victim nor first responders are aware of the dangers, and of course, symptoms are not visible bruises,” said Madeline Garcia Bigelow, Founder & Managing Director of the Domestic Violence Project at the Urban Justice Center. “At the Domestic Violence Project, we see the long-term impacts of TBIs that can be a detriment to a survivor’s ability to move forward, through no fault of their own. Specialized, science-backed training will help providers become more thoughtful in assessing a survivor who is presenting symptoms like confusion, memory issues, volatile emotions, etc. that so often mark them unjustly as “unreliable” and instead help connect them with resources for support. We are grateful for the partnership of Majority Leader Farias in helping to meet the real needs of survivors of intimate partner violence, who deserve the same level of care as athletes and military personnel experiencing the same forms of injury.”
“The Brain Injury Association of New York State (BIANYS) fully supports Intro 29, introduced by Majority Leader Amanda Farías. This legislation mandating specialized TBI training for first responders directly aligns with our mission to support, educate, and advocate for individuals and families affected by brain injuries,” said Christina Lebeau, Director of Advocacy and Engagement at BIANYS. “There is growing research linking brain injury with intimate partner violence, where injuries often go undiagnosed and untreated, leading to long-term health and cognitive challenges. Since first responders are often the first point of contact, equipping them with the tools to recognize and respond to TBIs is critical to ensuring timely, appropriate care and improving outcomes for survivors.”
“Sometimes, domestic violence can leave visible scars on survivors, but just as often, the physical effects of abuse are hidden. Intimate partner violence is one of the leading causes of traumatic brain injury, and survivors can sustain head trauma at a rate even higher than football players — yet these cases are woefully underdiagnosed,” said Nicole Branca, CEO of New Destiny Housing. “If first responders have the training to more effectively recognize the symptoms of TBI, survivors will be able to get the care they need quicker and recover from their abuse sooner. The City Council must pass Intro 29 and give our first responders the tools they need to serve New Yorkers most effectively.”
“The Arab American Family Support Center (AAFSC) is deeply committed to providing comprehensive, culturally responsive social services to New York City’s growing Arab, Middle Eastern, North African, Muslim, and South Asian immigrant communities. This includes AAFSC’s Anti-Violence Program, which supports survivors of domestic and gender-based violence. We strongly support Council Member Farias’ bill, Intro 29, which would require training for first responders and service providers to recognize domestic violence-related traumatic brain injuries (TBIs). This bill draws attention to the often-overlooked connection between domestic violence and TBIs, which frequently go undiagnosed due to a lack of awareness among both survivors and frontline professionals. At our Family Justice Center sites across all five boroughs, we’ve supported many survivors living with the long-term effects of TBIs. In one recent case, a survivor was unable to recall key events surrounding her abuse due to a brain injury, a powerful reminder of the urgent need for proper screening and informed care. Early recognition can prevent further harm and interrupt cycles of violence. Access to this kind of training and awareness has the power to save lives,” said Mark Foggin, Interim Executive Director of AAFSC.
