Empathy Over Apathy: VOTA’s Fight to Recognise and Support Victims of Terrorism in Australia
In the wake of terrorist attacks, the focus often remains on perpetrators and security responses, leaving victims and survivors struggling in the shadows. Caroline O’Hare, a former counterterrorism officer, saw this gap firsthand and co-founded Victims of Terrorism Australia (VOTA) to provide long-overdue support. In this interview, O’Hare discusses the challenges of launching VOTA, the urgent need for victim recognition, and the organisation’s mission to shift Australia from apathy to empathy. From peer support initiatives to countering violent extremism programs, VOTA is working to ensure that those affected by terrorism are seen, heard, and supported.
Marina Kazakova, VSE: What inspired you to launch Victims of Terrorism Australia (VOTA), and why did you feel there was a need for such an organisation in Australia?
Caroline O’Hare, VOTA: As a police officer for 42 years prior to retirement, with 30 years specialising in counterterrorism, I dealt with many victims and survivors of terrorism and recognised that there was very little support for them. I saw the need for a national support group that transcended Australia’s internal jurisdictional boundaries. Victims and survivors often did not receive adequate support from either the community or the government. In 2024, with a small group of like-minded individuals, we launched VOTA as a not-for-profit, non-government organisation.
Our Board includes a survivor of terrorism, Louisa Hope, who was a hostage in the 2014 Lindt Café siege; a lawyer, Mr. Steve Humphries; a former police officer and counterterrorism expert, Dr. David Gawel APM, whose doctoral thesis focused on pathways of radicalisation; and myself. We are supported by a working group of other survivors of terrorism, academics, and current and former police officers. We came together to fill the gap, to recognise victims and survivors, to provide them with a voice, to advocate for them, and to offer support. Australia needs to shift from an attitude of apathy toward victims and survivors to one of empathy, ensuring they are seen, heard, and supported.
Marina Kazakova, VSE: What were the biggest challenges you faced in establishing VOTA, and how did you overcome them?
Caroline O’Hare, VOTA: The first challenge was gaining acknowledgement that terrorism exists in Australia, that Australians have been killed and injured in international terrorist attacks, and that Australia is not immune to terrorism. Many Australians don’t recognise this reality. Over the past decade, there have been 15 terrorist attacks in Australia and numerous international attacks that have harmed Australians. However, we don’t know the full number of victims and survivors due to privacy laws preventing law enforcement from sharing victim details with us. As a result, we must raise awareness and wait for victims to come forward. We also strive to understand the broader impact of terrorist attacks, including the loved ones of victims, the bereaved, first responders, and witnesses.
The second challenge is securing recognition and support from federal and state governments. Governments must understand the vulnerability of victims and survivors, their need to be seen, heard, and validated, and the necessity of providing psychosocial support, which can be lifelong. By determining the number of victims, we can better advocate for government action. To overcome these challenges, we engage with as many people as possible in the community and government to raise awareness. Additionally, as a volunteer organisation, we operate with very limited financial resources.
Marina Kazakova, VSE: How does VOTA plan to provide support to victims and survivors of terrorism? Can you share any specific programs or initiatives?
Caroline O’Hare, VOTA: Many survivors struggle with the reality that they became victims not because of who they are but because of what they represent—the government. The institution meant to protect them often takes on the role of the victim, leaving them feeling displaced. We help survivors understand how and why terrorism occurs, which can be incredibly difficult to process.
Currently, we offer small peer support groups where survivors can share their experiences with others who have endured similar events. We also facilitate survivor engagement with government agencies responsible for counterterrorism and with community groups to educate the public about terrorism. Additionally, we advocate on behalf of survivors to help them access appropriate psychosocial support.
To help re-empower victims, some survivors participate in countering violent extremism programs. In a controlled and safe environment, they meet with individuals recognised as vulnerable to radicalisation. The goal is to foster empathy for victims among those on the path to extremism by putting a human face to the consequences of terrorism. This initiative also helps victims and survivors regain a sense of agency and validation.
Marina Kazakova, VSE: Australia does not have a long history of victim support for terrorism survivors compared to some European nations. What lessons has VOTA learned from countries with decades of experience in this field?
Caroline O’Hare, VOTA: We have learned that public and governmental education is crucial, and the best way to achieve this is through victims themselves using their voices. Additionally, memorialization is vital, and survivors should have input into the process.
Following international examples, we have advocated for a ‘victim-centric’ model of counterterrorism. This means that victims and survivors should be consulted on all legislation, policies, and practices that affect them. We also recognise the importance of peer support, which empowers victims by bringing them together. From international groups, we have learned about the necessity of a trauma-informed approach to assistance, ensuring that support systems prioritise the well-being of victims and adhere to the principle of “do no more harm.
Marina Kazakova, VSE: The Lindt Café siege was a pivotal moment in Australia’s understanding of terrorism. How has that event shaped the work and mission of VOTA?
Caroline O’Hare, VOTA: The Lindt Café siege was a high-profile terrorist attack, and one of our Board members, Louisa Hope, is a survivor. While recovering from her injuries, Louisa became an advocate for critical issues affecting survivors. VOTA is working to address these concerns, including the need for recognition and validation of survivors. Louisa has spoken extensively to both the community and government about her experience, raising awareness of the suffering of victims and highlighting how terrorism is a unique crime that impacts society as a whole.
We are also advocating for victim services to be more responsive to individual needs rather than applying a one-size-fits-all approach. Recently, we were deeply disheartened that the government failed to invite survivors to the 10th anniversary memorial of the Lindt Café siege, despite our advocacy. Only the bereaved families of those who died were included. We are currently urging the government to consult with us on all matters affecting victims and survivors and have requested an apology for our survivors, though we are still waiting for a response.
Marina Kazakova, VSE: What role do you see law enforcement and government agencies playing in supporting victims of terrorism? Are there gaps in the system that VOTA hopes to address?
Caroline O’Hare, VOTA: We are actively working with law enforcement and government to implement a victim-centric approach, as discussed above. Introducing victims and survivors to those in law enforcement and government who are responsible for preventing and responding to terrorism has been powerful. It helps to reinforce to those entities the reason they are engaged in countering terrorism in the first instance, which is to prevent people from becoming victims. We also see countering terrorism as a whole-of-government and whole-of-community responsibility, and our survivors are very keen to participate in government and community counter-terrorism programs.
Marina Kazakova, VSE: VOTA is supported by the Police Association of NSW. How significant is this partnership, and what kind of support are you seeking from other organisations or the public?
Caroline O’Hare, VOTA: The Police Association of NSW (PANSW) provided us with a small amount of seed funding, which allowed us to establish our website and pay our company fees. The PANSW is over 100 years old and has a current membership of about 16,000 sworn police officers in NSW. The Association is the police union in this state and recognises that police officers who are first responders have become victims and survivors of terrorism. Three police officers in Australia have been murdered by terrorists and deliberately targeted because they were police. Others have been stabbed and shot during terrorist attacks but have survived. Additionally, police officers who investigate terrorism have also become victims of terrorism and are vulnerable to PTSD. Therefore, the PANSW recognised that providing funding to us helped them support their members.
The support from the Association has been integral to our initial establishment, as we have no other funding and would not have been able to launch without their financial support. We would like other organisations to support us financially and also be involved in memorialization and in taking an interest in what happens to the survivors and victims of terrorism in the aftermath. We hope this will build empathy and understanding. We have also engaged academia to conduct research for us about the gap in victim care, which was provided voluntarily, greatly helping us as there was no financial cost involved, and it has been enormously beneficial.
Marina Kazakova, VSE: As a retired counter-terrorism officer, how has your experience in law enforcement influenced your approach to victim advocacy?
Caroline O’Hare, VOTA: It has given me unique insight into the long-term issues faced by victims and survivors, as well as the overall lack of support, understanding, compassion, and empathy. Having worked in this field for so long, I have maintained contact and built relationships with some victims for over 20 years. This has allowed me to see how they have coped over time and to ask some of the more experienced individuals to assist younger survivors through peer support and education by sharing their experiences.
I am also fortunate that, due to my background in counter-terrorism policing and government, I have developed a unique understanding of the legislation, systems, policies, and processes affecting counter-terrorism practitioners and survivors. I know where to go to get help for them, have relationships with government agencies that I can leverage, and can advocate on the victims’ behalf as a result.
Marina Kazakova, VSE: You will be attending the upcoming Victim Support Europe Annual Conference, one of the largest global gatherings for the victim support community. What do you hope to achieve by participating in this event?
Caroline O’Hare, VOTA: The most important aspect of attending will be learning from international experts and forming critical networks with other support groups. I have been building an international network in this space for many years, and because Australia is so far away from the rest of the world, there are few opportunities to meet face-to-face and discuss in person the challenges we all share.
It will also be great to receive support from other like-minded group organisers and share our common experiences to work toward solutions to our shared challenges. Additionally, I am keen to share some of the initiatives we have launched in Australia, including our proposal to be involved in countering violent extremism through direct communication (where appropriate) between survivors and those at risk of radicalisation. Meeting in person provides a unique opportunity not only for camaraderie but also for friendship, mutual support, and understanding.
Marina Kazakova, VSE: The Year of Victims’ Rights is a major VSE’s campaign in 2025, advocating for the universality of victims’ rights, stronger legislation, and sustainable victim support funding. How do you see VOTA’s mission aligning with this campaign, and how can its message be amplified in Australia?
Caroline O’Hare, VOTA: VOTA is committed to supporting victims’ rights, including their right to be heard. As a result of our advocacy for a victim-centric model of countering terrorism, VOTA can use its Australian local and national outreach networks to promote the campaign. We can achieve this through our website, social media, and direct opportunities to speak to the community and government stakeholders through the outreach that our survivors and board members currently undertake.
