¹ Johnathan Rauch, "Kids as Capital," Atlantic Monthly, August 1989, p. 57.
² See Appendix C: United Nations Convention on the Rights of the Child.

Article 34 further states:

States Parties undertake to protect the child from all forms of sexual exploitation and sexual abuse. For these purposes States Parties shall in particular take all appropriate national, bilateral and multilateral measures to prevent:

(a) the inducement or coercion of a child to engage in any unlawful sexual activity;

(b) the exploitative use of children in prostitution or other unlawful sexual practices; and

(c) the exploitative use of children in pornographic performances and materials.

The second gift ... the gift of the South ... is that of honesty. We have a responsibility to be honest with ourselves and honest in our relationships with each other. We are not to be deceitful nor insincere. As we know, honesty must start with ourselves. As individuals, we must stop denying that illness or victimization will never happen to us. We must take responsibility for ourselves and for our actions. This means being honest about our behaviours which put us at risk. It means changing those behaviours where they are a threat to ourselves and others.

The gift of honesty must always be tempered with the gift of kindness.

The fourth and final gift comes from the North. It is the gift of strength. This gift gives us the ability to endure. Shared, it is a gift which helps others endure and be strong in theface of adversity.

We hope that by developing a strategy which is built on the gifts of the creator and the values of our people, we will have a strategy which is strong ... a strategy which will serve and protect all of us from the very real and serious threats which are posed to our people and people everywhere¹.

·     Improvements to the long-range socialization of children regarding gender roles, power relationships and attitudes toward sexuality are crucial agendas in order to address the underlying causes of child sexual assaults and child sexual abuse.

·     New resources are needed for front-line service activity. This will require a federal/provincial/territorial cost sharing program to enable the provinces/territories to deal with critical gaps in service, as well as with the current overload on front-line services. These services include investigation, prosecution, healing and treatment, and public education.

·    Increased ongoing education and training activity for front-line staff and supervisors is critical. Multi-disciplinary training is required at the local level where inter professional co-operation is essential. Generic professional training is now inadequate as a result of the new knowledge and insights that are now known about child sexual abuse.

·     The criminal justice system is an important lever in our society both to deter child sexual abuse and to aid in the treatment of sexual offenders. The power of this system needs to be used to benefit and protect children. There has been progress in this area, but much remains to be done.

·     There are a variety of resource persons across Canada who can make an immense contribution to resolving issues that are baffling or are still emerging; they can provide the cutting edge to deal with emerging issues, research and information sharing. These experts should be encouraged to apply their expertise through a system of advisory or federal/ provincial/ territorial committees.

¹ Badgley Report, p. 198-99.
² Christopher R. Bagley, "Child Sexual Abuse in Canada: Further Analysis of the 1983 National Survey" (Ottawa: Health and Welfare Canada, 1987), p. 38.

Reported Cases

Dr. Vail Williams has found that of adult patients sexually abused as children, 22% had multiple personalities, 95% had a poor self-image, 58% were non-sexual, and 84% had attempted suicide. Other studies have established correlation between child sexual abuse and learning disabilities, drug/alcohol abuse, prostitution, runaway children,dysfunctional relationships, and crime'.

Multiple Victims, Multiple Offenders and Ritual Abuse

I write this chapter with very mixed emotions. The prospects of adding new structures or otherwise adding to the overhead of our current system is a frightening idea, particularly when resources are desperately needed at the front line.

I believe several factors outweigh the risks of new strategies, and these benefits have prevailed in my thinking. They can be summarized as follows:

· There is a need for an ongoing responsibility centre within the federal government related to children's issues. There is little likelihood of diligent, persistent efforts to deal with children's issues on a continuing basis without an accountability to do so. It is vitally important that consultation be improved between the federal and provincial/ territorial governments concerning these issues, and this will be greatly facilitated by having some systemic restructuring.

· The experts in the field and the non-governmental sector must be assisted to make their contribution. By assisting them to work together on key issues, to improve strategies at the local level and to use their expertise to improve services, governments can ensure a much more effective use of human and financial resources.

· Multidisciplinary training is a crucial requirement for human resource development. It has to be available on a regional basis and sustained on a continuing basis so that front-line workers are adequately supported.

¹ Ken Dye, Report of the Auditor General of Canada (Ottawa: Supply and Services Canada, March 31, 1988), article 4.50.

1.     a steady increase in referrals of sexual and physical abuse; and

2.     an increase in the complexity of these newcases.

These two trends continue to place heavy stress on our capacity to provide adequate services, and increasingly raise the question of whether or not we are falling short of our legal mandate in this area¹

Further, the commission writes:

Community organizations are playing an even more important role in matters of health and welfare. We recognize more and more the merit potential of "natural networks " and organization based on the community....

The Commission feels that if we want to encourage this movement [toward community-based organizations], certain substantial changes must be made. Explicit recognition of the contribution of the community organizations should be manifested by adequate mechanisms of financing, by a respect for their autonomy and by the establishment of co-operation between the public network and the community resources²

Co-ordination of Resources

·    a vision of needs for the future and a strong sense of direction and commitment to move toward an improved future based on front-line realities; and

·     a minimum of jurisdictional disputes so that goodwill, determination and a willingness to collaborate with other ministries in the interests of providing comprehensive and integrated service become pervasive, with senior management setting the spirit and tone of collaboration and conveying this throughout the system.

Federal Initiatives

A Federal Structure for Children's Issues: The Children's Bureau

· new cost-sharing programs to cover the gaps in current cost-sharing programs to meet the unique needs related to child sexual abuse;

· more resources for front-line services;

· a commitment whereby every structure that is set up is designed to improve services on the front line;

· commitment by the non-government sectors, including services, advocacy coalitions, professional associations and professional schools, to share ownership at a community level for reducing and eliminating child sexual abuse, because there must be improved co-operation and a more mutual effort among the non governmental sectors;

· a commitment to adequately train professionals and volunteers so personnel in all sectors are competent to deal with child sexual abuse; and

· an understanding and commitment by all parties that the roots of child sexual abuse have to do with inadequate gender socialization, sexual stereotyping and power imbalances in human relationships.

The Scope of System Responsibilities

·     children growing up in poverty;

·    federal daycare concerns;

·     the implementation in Canada of the United Nations Convention on the Rights of the Child, and

The Children's Bureau should:

·    serve as a resource body to other federal ministries responsible for issues affecting young offenders, aboriginal children, institutionalized children, children in care, disabled children, juvenile prostitutes, and victims of child pornography and child sexual abuse;

·     convene regular meetings of interdepartmental representatives related to children's issues;

·     serve as a resource regarding appropriate legislation, policy and administrative reforms related to children's well-being in Canada;

·     develop and maintain federal-provincial/ territorial consultations related to the well-being of children and improvements in children's services on an ongoing basis;

·     actively liaise with the Council of Ministers of Education and the national education associations regarding primary prevention strategies to enhance children's well-being;

·     develop and maintain consultation with the voluntary and private sectors related to the well-being of children in Canada; and

·     administer a funding program related to child advocacy in the non governmental sector (see Recommendation 5).

·     and remaining accessible to this constituency, including those working in or concerned about the field of child abuse;

·     working closely with the Children's Bureau and other departments of the federal government that are serving children's interest;

·     maintaining liaison with regional resources centres and expert advisory committees in the child abuse field; and

·    regularly briefing the minister and helping the minister monitor the effectiveness of the Children's Bureau and progress toward fulfilment of the United Nations Convention on the Rights of the Child.

·     it should be computer-linked to other resource centres, should have a toll-free number to facilitate broad access, and should be staffed by persons with expertise and experienced in the area of child abuse;

·     it should incorporate the information base on child abuse contained in the Clearinghouse on Family Violence of Health and Welfare Canada as well as the National Victims Resource Centre in the Department of Justice;

·     it should actively disseminate information about child abuse across Canada, particularly through resource centres operated by regional and provincial/ territorial governments;

·     it should publish a journal on child abuse developments, similar to the journal on Canada's mental health;

·     it should assist regional resource centres with the development of training materials and programs;

·     it should provide assistance to professional schools, community colleges and the Canadian judicial Centre in developing materials and programs for education of a variety of professionals; and

·     it should support and assist in the development of public education materials.

·     actions must make a difference in local communities and front-line services if there is to be real change;

·     the non governmental community must show leadership and assume responsibility to help develop a caring society; and l empowering the vulnerable to assume control over their own lives is essential to reduce the threat of victimization.

·  to maintain a resource and information centre that is computer-linked to the National Resource Centre for Child Abuse Prevention, and to provide resource materials and training materials on child abuse;

·  to assist regional resources in providing services accessible to disabled children(hearing, visual, mobility, developmentally and mentally impaired);

·  to support local co-ordinating committees on child abuse and a variety of other community-based organizations with information, consultation, training and resource materials;

·  to initiate appropriate research activities in accordance with particular areas of need and interest of the regional resource centres;

·  to assist government authorities in the development of appropriate policy recommendations; and

·  to develop specialized expertise within the field of child sexual abuse, which in turn can be a resource to the nation as a whole.

·     specialized services for aboriginal constituencies, including a comprehensive resource centre;

·     the special needs of rural and remote communities;

·     the special needs of institutionalized children;

·     the special needs of disabled and mentally handicapped children; and

·     the special needs of immigrant children who have been victimized.

·     support to the operation of Regional Resource Centres.

Provincial/Territorial Government Initiatives

  Recognizing the complexity of the issues as well as the separate jurisdictional responsibilities of the provincial/territorial governments, the following suggestions are put forward as considerations for use in long-range planning by these levels of government. As noted in the Foreword, I do not wish to intrude into other jurisdictions. Recommendations are put forward in the hope they may be useful for consideration by the appropriate jurisdiction. In many instances these suggestions also reinforce initiatives which are already underway.

·     protocols for family doctors in smaller communities related to reporting and assisting with victim assessment and treatment requirements; and

·     provincial/territorial health plans that, in conjunction with their respectivemedical associations, provide remuneration arrangements for childabuse cases to adequately reflect theirdifficult and sensitive nature, and allowtime billing.

Protocols

² Health and Welfare Canada, Report of the Subcommittee on Institutional Program Guidelines: Guidelines for establishing standards for health care related to abuse, assault, neglect and family violence (Ottawa: Health and Welfare Canada, 1989).

·     a development committee small enough to allow significant input from each member and large enough to fairly represent all agencies; and

·     teams of professionals from two or more agencies to carry out such activities as investigation, assessment or treatment.

Recommendation 12

Monitoring the Delivery of Child Protection and Welfare Services

An International Model

The Family as Nurturer

·     strategies for the prevention of child sexual abuse must incorporate provisions for the early identification of existing victims and offenders, as well as those at high risk of becoming victims and offenders;

·     any public awareness efforts must be undertaken with the recognition that increased awareness of the existence of child sexual abuse has been accompanied by increasing numbers of disclosures and thereby increased stress on a service delivery system that is already struggling with the problems of burnout and inadequate resources; and

·     all initiatives to prevent child sexual abuse should be undertaken with a sensitivity to cultural differences and a commitment to involving survivors and local communities.

¹ See Appendix C

Public Awareness Programs

Scores of phone calls poured into Engineering at B.C. Telephone, after the film was launched and after the PBS broadcast. My office became a counselling centre. At my workplace in one department alone, there was a disclosure rate of 25%. What had I expected? The statistics had warned me!

Shirley Turcotte,
Subject of the film To A Safer Place

Prevention in Schools

I just couldn't seem to concentrate on anything. My mind would always wander and if I stopped to think of anything for too long the thoughts about my dad [abusing me] always came back. The teachers at school used to get really mad at me for that because they always said I wasn't paying attention to them. I think if they knew why I wasn't paying attention to them, maybe they wouldn't have rotten so mad.

A Victim

¹ Tony Martens, The Spirit Weeps (Edmonton: The Nechi Institute, 1988), p. 33.

² Canadian Institute of Child Health, Safe and Happy (Ottawa: CICH and Outreach Abuse Prevention, 1988).

² V. Fronczek and J. Sippel, Blueprint for Child Abuse Prevention: A Comprehensive Approach (Vancouver: Society for Children and Youth of B.C., May 1987).

³ Canadian Red Cross society. Child Abuse Prevention Program (Vancouver: Canadian Red Cross Society, 1987).

² Canadian Council of Children and Youth, Put the Child First (Ottawa: Canadian Council of Children and Youth, 1989).

·     Church pronouncements regarding basic values need to be clearly enunciated. Families should be seen as nurturing centres for all family members, where violence and abuse of any kind are morally wrong and unacceptable. The churches need to speak out against child pornography, physical and sexual assault and other forms of violence, especially male violence both inside and outside the home.

·     Religious leaders need special education, as do other professionals, regarding the dynamics and symptoms of child sexual abuse, so they can recognize the problem and respond in supportive and helpful ways. Church professionals are part of the front line in the community for disclosures. They need to provide moral support for victims and to give appropriate referrals for treatment and official investigations.

·     Church organizations require clear and unequivocal policies regarding the sexual conduct of their professionals and volunteers. Clear guidelines for intervention must be developed. Perpetrators must be held accountable for their actions and should be subjected to full criminal investigation, though also supported with necessary treatment and pastoral counselling. Suspected sexual offenders should not be transferred by church authorities to other communities until a clear resolution about alleged conduct is investigated. Cover-up and protection of perpetrators must not be tolerated.

² However, if a child victim does refuse to testify against an offender at trial, the child should not be prosecuted for contempt of court; this would again victimize the child. Such a refusal to testify must be seen as a failure of the system to provide adequate support to a child.

Recommendation 23

² At present, there is a lack of clarity about the role and rights of non offending parents in a sexual abuse case, whether it involves intra- or extra-familial abuse. While theoretically a parent who interferes with a prosecution may be charged with obstructing justice, in practice, it may be difficult or impossible to proceed with a case without the assent of a parent who continues to reside with a child. There may be situations, particularly those involving extra-familial abuse of young children, where the opposition of parents to a prosecution is based on a genuine concern for the child's welfare. Non-offending parents require support during the court process, if only as part of the process of supporting the child.

·     permitting use of the videotape of an interview with the victim in which the child describes the acts complained of, provided that the tape is/was made "within a reasonable time" of the acts complained of and that the child testifies in court; and

Reforms for 1992

² For an article explaining the law in the United States and discussing situations where such evidence may be useful, see B. Gardner, "Prosecutors Should Think Twice Before Using Experts in Child Sexual Abuses Cases," Criminal justice 3 (3): 12 (American Bar Association, Section of Criminal justice, 1988)

³ See R. v. Khan (1988), 27 O.A.C.142 (Ont. C.A.), where the "spontaneous declaration" exception to the hearsay rule permitted the mother to relate a statement made by her three-and-a-half-year-old child 15 minutes after the alleged assault. In R.v. Malette (1988), 6 W.C.B. (2d) 341 (Ont. Dist. Ct.), a statement made by a three-and-a-half-year-old child to her mother nine hours after an alleged assault was also admitted as a "spontaneous declaration." In R.v. Owens (1986),33 C.C.C. (3d) 275 (Ont. C.A.), statements made by young boys to their parents several hours after abuse were admitted for the purpose of buttressing their credibility.

Videotapes, Closed - Circuit TV and Screens

We believe very strongly that in cases of incest or intrafamilial molestation, it should be the accused and not the victim who is forced to leave the home pending trial. Placing us in care tells us that we have done something wrong and that we are being punished. We have committed no crime! Concern over the accused's "property rights" is not a valid reason for depriving us of our right to a real family.

National Youth in Care Network¹

·     permit witnesses to testify about the out-of-court statements made by a child about allegations of abuse;

·     permit judges dealing with bail hearings to order that persons charged with sexual offences against children vacate their premises, if this is necessary to promote the interests of a child, and to order that such persons not associate with particular children pending trial;

·     permit judges to allow an adult to accompany a child under age 12 to the witness stand, provided that this is necessary to ensure the child is not intimidated by the process and that this is not prejudicial to the rights of the accused to a fair trial; and

·     permit use of videotapes of a prior statement by any child witnesses in a child sexual abuse prosecution.

Recommendation 30

·     considering the possibility of permitting the appointment and participation of counsel to protect the needs and interests of children.

Sentencing in Criminal Court

Child sexual abuse is one of the most serious and damaging criminal offences. We are violated and hurt in a most private manner. Why does sentencing for convicted perpetrators not reflect this? One young woman in our group spoke of how the individual who molested her received a one year suspended sentence. Is child sexual abuse a crime or isn't it? We question whether the legal system at this point in time really believes that it is. Regardless of what happens to the offender, we receive a "life sentence."

National Youth in Care Network¹

1 Raychaba, "We Got a Life Sentence."

Recommendation 37

Recommendation 38

Child Protection

² See, for example, D.R.H.v. Superintendent of Child Welfare (1984), 41 R.F.L. (2d) 337 (B.C.C.A.), leave to appeal to S.C.C. dismissed, 42 R.F.L. (2d) XXXV; and D. A. R. Thompson, "Taking Children and Facts Seriously," Canadian Journal Family Law 7 (11): 54-75.

Recommendation 44

Unified Family Courts

Recommendation 47

The Role of Screening

Recommendation 50

Recommendation 51

² Children's Services Act, s.43(2), as amended by S.N.S. 1988, c. 46, s.9, not yet in force.

Research

·     continued monitoring of Bill C-15 implementation, especially effective methods of using videotapes;

·     reliability of child witnesses;

·     false allegations, including characteristics and methods of investigation;

·     problems of investigating and presenting cases involving multiple victims, multiple offenders and ritual abuse; and

·     male versus female victims in the court system and whether there are systemic differences in terms of their acceptance as reliable witnesses in court.

 The Challenges of Healing and Treatment
 

    Victims of child sexual abuse have been neglected by the treatment community for generations. Throughout their lives, they have had to find their own ways for healing and coping with their childhood experiences. Sometimes, in turning to traditional helping agencies, their victimization has been extended through misdiagnosis, inappropriate medication or misplacement of blame on the victim.

    The sexual abuse of a child is a traumatic event that, in addition to legal responses, also requires the availability of comprehensive and specialized healing and treatment services for all those affected in order to aid in recovery an to minimize the risk of further abuse of the same and/or additional children.

    In some ways it is sadly ironic that the treatment area, which is so central to the healing and support of victims of child sexual abuse, is the area that has had the least attention and that is in a critical stage of disarray and conflict.

    Jeffrey Masson's, book, The Assault on Truth^l, describes how the adult victims who came to Dr. Sigmund Freud for therapy describing their child sexual abuse were diagnosed as hysterical. It appears that the psychiatrists and psychologists who followed Freud continued for decades to deny child sexual abuse and prescribed valium and treatment methods that further victimized these women.

    Although Freud originally recognized abuse in his patients, he was forced to repudiate his own observations and to mask the abuse under the theory of the Electra Complex, i.e., that the female child had fantasies about sexual encounters with her father. He could simply not bring himself to deal openly with child sexual abuse, for the same reasons that society as a whole repressed the issue ¹ J. M. Masson, The Assault on Truth: Freud's Suppression of the Seduction Theory (Toronto: Collins, 1984).     Prior to the 1980s, most doctors, counsellors and social workers simply did not have any training concerning the dynamics of sexual abuse. This meant that they often failed to recognize abuse as the underlying source of the presenting problem, be it marital breakdown, promiscuous adolescent behaviour, eating and sleeping disorders, depression, alcoholism or attempted suicide. Even if a history of abuse surfaced, they were unprepared to deal with it in a therapeutic sense, either because of personal discomfort or because of a lack of theoretical knowledge or skills. This lasted at least through the middle of this decade, often leading even protection workers, who were trained to detect physical abuse and neglect, to miss the presence of sexual abuse in these children.

    Even in the first five years of this decade, most child protective service agencies lacked the ability to identify child sexual abuse at the time of intake in the absence of a specific complaint. Much later in the treatment process, while concentrating upon physical abuse or neglect, workers were sometimes able to identify that sexual abuse had also been occurring.

    Today, even though the helping community knows much more about child sexual abuse, problems remain. Those who want to help have difficulty in accessing good and supportive training experiences to equip them with the best understanding of the problem. Once trained, the relatively few front-line workers assigned to sexual abuse cases are often overwhelmed by numbers and by a very complex and demanding caseload. They tend to become demoralized and often burnt out because of the nature of the work and lack of needed support services. There just are not enough resources available to run effective treatment programs.

    Within the helping community, there are philosophical conflicts that impact upon the services offered. Many counsellors support a child-centred approach to treatment and are responding to the changes brought about by the new criminal legislation. Others continue to concentrate upon helping the offender and have difficulty in accepting that the courts must now play a role in cases of child sexual abuse. There are also many therapists who continue to practice as they did 20 or 30 years ago and are unaware of the need to incorporate the new understandings about childhood sexual victimization into their work.

    There have been some improvements, but many more are urgently needed to stop the continuing maltreatment of children. The treatment area requires detailed examination by governments, professional associations and professional schools. Some basic ideas must be accepted as the basis for any treatment: E Victims of child sexual abuse must never be blamed or held accountable. Victims need support and time for healing.

    We know more about female child victims, but we cannot forget that there are- many boys who have been victimized. It appears to be more difficult for males to come forward and disclose that they have been sexually abused. They appear to fear being thought of as homosexual and often wonder why they have been chosen by men for sexual activities. Our social rules have taught that males should not express their feelings and should learn to keep their troubles private. We have not done a very good job of reaching out to boys to help them deal with issues of victimization. The special needs of male victims must be understood in developing treatment strategies.

    Adequate treatment programs are not yet developed but are desperately required by a range of children with special needs. These are described more fully in Chapter 9 on Emerging Concerns: Special Groups.
 

    While victims of child sexual abuse may share some injuries in common, therapists must be open to the individual aspects of each case and must not impose assumptions upon those who have been victimized.

    Some victims suffer severe and long-term psychological trauma. Other victims seem to be able to cope with their experiences, manage well in both their family and work environments, and parent their children effectively, even though they may carry the scars of the child sexual abuse. For example, Canadian paediatrician, Dr. Ken Finkel conducted a study of 417 female victims of sexual abuse and found that, while 75% reported harmful effects of the abuse, 25% reported no awareness of subsequent effects¹. This information only serves to underline that no assumptions should be made about how victims are coping with abuse.

    Most children are victimized by male members of their own families or by men they know well and often consider to be an extension of their families. However, therapists must remember that some children are victimized by females or by strangers, though this is less common.

    When a child is victimized by a member of the family, it is not correct to assume that the family is dysfunctional. It is essential to explore how family members relate to one another and to challenge family beliefs about power and authority. However, it is critical that the therapist understand that an uncle or a grandfather who molests a child may be acting out sexual and personal inadequacies that are specific to the individual and that do not reflect on other family members.
 

    Because a child is afraid of and angry at an abuser, it is incorrect to assume that the child does not have affectionate or even loving feelings for the perpetrator. Especially if the offender is a member of the child's immediate family, the child is often torn by ambivalent feelings of love and hate. A therapist who denies the caring feelings can cause the child even more pain.

    Many recent cases of child abuse by camp counsellors, youth leaders, school teachers and priests that have come to light have involved male perpetrators and male victims. It may be that male victims are molested more often by perpetrators outside the family. The bonding between the victim and offender in these cases of extra-familial abuse is usually different from that occurring within families. Therapists must be aware of the dynamics of that special kind of bonding and cannot assume that the relationship is similar to that occurring in intra-familial abuse.

    Many victims and their families reported to the Special Advisor during his consultation process of the inadequacy of care provided by the so-called "helpers" in their communities. Their stories reflect incidents that were clearly secondary victimization by the system and by the ill-equipped therapists who attempted to help them. They indicate that the victims were often forced into treatment plans without adequate prior consultation and that the victims' own unfortunate circumstances were used as learning situations for inexperienced professionals who were supposed to be providing treatment. Sometimes inappropriate therapeutic information seemed more harmful than the original abuse.

    Healing and treatment services fall primarily within provincial/territorial jurisdictions, with the exception of the federal correctional institutions and some services to aboriginal peoples. Federal-provincial/territorial co-operation is of immense importance if problems in the healing and treatment areas are to be adequately addressed. Thus, along with recommendations to the federal government, the Special Advisor is respectfully putting forward recommendations for inclusion in the priority planning of other jurisdictions. It is hoped that these ideas may be useful in the important deliberation of all parties in the period ahead.

    As noted in Recommendation 7, an Expert Advisory Committee related to healing and treatment should be established and should have a mandate to consult with victims, adult survivors, practicing therapists, researchers and self-help groups to explore issues of relevance to healing and treatment to develop appropriate policies.

    Every conference, television program and book published about child sexual abuse brings forth a host of further disclosures from adults who were sexually abused as children. The first disclosures came from women. More recently, disclosures are coming from men, some of whom have kept the secret for decades. Past systems have failed these people when they sought support. Many tried to tell and were not believed. Many were punished for being "seductive" or "malicious" and others lost their families by disclosing. Most remained silent out of fear or guilt or because their psychological defence mechanisms repressed those memories.

    Recent studies are beginning to identify that there is often a link between drug abuse and sexual or physical abuse among women. A, recent study by the Addiction Research Foundation of Ontario² found that women sexually abused as children were three times more likely than non-abused women to use medication to calm them and twice as likely to use drugs to help them sleep. This further adds to the urgency of meeting the treatment needs of adult survivors.

    During the consultations with the Special Advisor, many participants pointed out that there are jurisdictional and leadership tensions between the corrections system and other treatment personnel. Some observers felt that with the current crisis of inadequate resources, jurisdictional problems will not be resolved until the resource issue is settled. With regard to the treatment of victims and offenders, there are major jurisdictional and co-ordination problems, with important service gaps.

    Part of the problem is that provincial/ territorial services for the treatment of victims and survivors of sexual abuse are seriously underfunded. They are not directly covered under the Canada Health Act and in most cases are not eligible for cost-sharing under the Canada Assistance Plan.

    Another issue raised during the consultations was that mental health needs seem to have a low priority in hospital health services in comparison with expensive new equipment and advanced treatment technologies for physical illnesses.

    Prevention strategies and public awareness targeted at eliminating child abuse fall within the context of Achieving Health for All¹, the federal government's policy framework for strengthening the well-being of Canadians. In 1988, Health and Welfare Canada also developed a conceptual framework for tackling mental health issues in Striking a Balance^l. These approaches should prove helpful in clarifying mental health policies and priorities over the longer term.
 

    The Federal/Provincial/Territorial Committee on Mental Health has been examining these issues carefully and is considering ways of strengthening mental health services. A subcommittee has been developing proposals related to children's mental health and community mental health

    From a very preliminary overview, it would seem that health care agendas may be seriously out of balance and that senior levels of government need to review priorities. In principle, the mental health field should be providing leadership in strategies to treat victims and offenders of sexual abuse and should be key players in community primary prevention teams.

    That provincial/territorial governments develop methods of providing psychiatric consultation services in community-based settings, as well as utilizing the services of psychologists, social workers, and community health nurses.

    Victims of child sexual abuse need a full range of effective and supportive treatment services. The need begins when children are seen to be "at risk" and continues long after the disclosure, sometimes throughout life. Although we are improving the process of identification and handling of disclosures, the support process for victims demands a significant increase in resources. Even in the centres in Canada where child sexual abuse has been identified as a priority concern for service delivery, there are very strong messages about the need for more resources. Some of the salient treatment needs are outlined below.

    That provincial/territorial governments address the gaps in the delivery of treatment services, such as the need for crisis casemanagement teams, comprehensive diagnostic assessment services, and the adequate support of community-based agencies. Recommendation 57     That the federal government, in partnership with provincial/territorial governments, study the particular problems in providing treatment services to rural and remote communities and develop innovative agreements to better utilize treatment specialists, self-help groups, indigenous helpers and community volunteers. These initiatives should be cost-sharable (see Recommendation 8).

The Special Concerns of the Non-Offending Parents., Grandparents and Foster Parents

    Too often, professionals are reluctant to share information about the needs and treatment plans for young victims. Policy makers and professionals must recognize that non-offending family members and other caregivers such as grandparents or foster parents are part of the "healing team."

    The unwillingness of some professionals to share information may reflect concerns about confidentiality. If necessary, professional standards or provincial regulations should be amended to permit appropriate information to be shared with caregivers, with the child's knowledge and permission.

    This distancing of caring people who are close to victims is unfair and denies children opportunities for sharing their fears and concerns. Whenever possible, non-offending parents, grandparents and foster parents should be encouraged to understand more about child sexual abuse by participating in case meetings, by attending and supporting group meetings, by being provided with supportive literature, and by being included in treatment sessions with the children.

    That provincial/territorial policies and therapists ensure that treatment plans for child victims are shared with non-offending parents and other caregivers, and that these individuals are appropriately involved in the healing process.

    Healing and treatment services are enhanced when a variety of disciplines are able to work together to provide a multidisciplinary approach. Therapists need to interact with those involved outside the treatment process, such as lawyers and investigators. Where therapists are working individually, their efforts can benefit greatly by the existence of treatment networks that can stimulate interdisciplinary sharing. Individual therapists should be encouraged to be active in treatment networks (this is described in more detail in Chapter 7 on Information Needed: Education, Training and Research).
 

    With the creation or extension of local co-ordinating committees, treatment networks can be enhanced. Where they do not exist, they can develop as part of local co-ordinating committee activity. This is addressed in Recommendation 10 in Chapter 3 on Systems: In Search of. Harmony and Effectiveness.

    Many offenders have great difficulty in accepting responsibility for the wrongful acts they have committed and often deflect blame. They often deny they have committed the acts with which they are charged, even in the face of irrefutable evidence and after conviction in court. Their social and emotional development, as well as their sense of values and morality, may be very limited. Some adult offenders are viewed as virtually untreatable. However, it is apparent that many offenders are amenable to treatment; if offenders receive appropriate treatment, they may not commit further offences. Unfortunately, all too often appropriate treatment is not available.

    Most correctional facilities have inadequate resources for providing treatment services for sex offenders. In some provinces, there may be only one offenders' treatment program serving the entire province, making it impossible for many offenders to receive services. Many sex offenders in fact do not receive any treatment.

    There are several obstacles that are retarding the expansion of offender treatment. Many offenders are severely damaged people and require extensive and long-term therapy. Furthermore, dealing with sex offenders is a particularly difficult and challenging task. While there is an appreciation of the value of treatment for sex offenders, it is recognized that there are also limitations to what can be accomplished in treatment.

    Continuity of treatment from the correctional institution to the community is an important need, and yet is often difficult to arrange. Programs tend to operate in isolation, and there is an obvious need for better co-ordination among the organizations involved in offender treatment. There are still too few experts to meet the need for treatment programs, and there are inadequate training opportunities to allow individuals to develop the expertise needed for this field. A problem associated with the treatment of offenders in Canada is based on the division of responsibility between the federal and provincial levels of government. The provincial/territorial governments are responsible for offenders serving sentences of less than two years, while the federal corrections system is responsible for inmates sentenced to terms of two years or more. The different systems often have very different treatment facilities and philosophies; whether an offender receives any treatment at all may be determined by the system he happens to be placed in.

    A tragic event that occurred in Toronto in January 1988 highlighted problems associated with the treatment of offenders when a woman was sexually assaulted and killed. The offender was in breach of the conditions of a 48-hour temporary absence from a community-based correctional facility. A board of investigation, chaired by Jane Pepino, was established to inquire into the circumstances around the death. The resulting report included 32 recommendations. Its Recommendation 30 stated:
 

    Many offenders were victims during childhood and were not able to heal or to deal with their own powerlessness. The scars of victimization for juvenile sex offenders are usually recent ones. The need for programs for adolescent offenders, who were themselves victims, is particularly critical. Counselling, values training, social development and group therapy are all crucial. Without effective treatment, some adolescent offenders will continue to victimize children throughout their lifetimes.

    The urgency of the treatment issue was forcefully brought home to me when I watched a videotaped interview with three boys aged 14,15 and 16. The taping had been arranged for my benefit, with the permission of the three boys. The three had been in treatment for about nine months after each had admitted to charges of sexually molesting a younger child. All were receiving treatment in the custody facility where they were serving their young offenders sentence. Their therapist conducted the interview.

    Each of these young offenders said that he had first been abused at about four years of age and had been sexually molested by both men and women repeatedly until about nine years of age. The offenders were family members or adult friends of the family. At about age nine, the boys began molesting other children; some they knew and some were strangers. Each guessed he had molested about 50 children, although the three had been charged with only one offence each.

    A view supporting the notion that treatment must begin with child victims to prevent their becoming future offenders was expressed by Christina Dawson, a sex offender therapist at Family and Children's Services in St. Thomas, Ontario:

     The Need to Evaluate Treatment Services     Ray Thomlinson in his Review of Child Sexual Abuse Treatment Outcome Research, reports:
 

    This conclusion vividly highlights the gap between outcome research and the growing number of treatment initiatives. Few treatment strategies have been subject to rigorous evaluation. The Special Advisor senses that therapists are already putting into practice treatment methods that have not yet been formally evaluated in terms of their impact. This is inevitable in a rapidly evolving field, but evaluation over time is essential.

    Some advanced treatment programs involving individual counselling, self-help groups, family therapy or group therapy are emerging in several centres. Repentigny, Montreal, Winnipeg, Toronto, Hinton (Alberta), Calgary, Saskatoon, Ottawa, Edmonton, Vancouver, Kingston and London are centres where well-developed treatment programs have been established.

    Various agencies are providing specialized clinical services for children and their families. Some offer treatment programs only for victims and their mothers. Some include other non-offending family members. Others attempt to reintegrate the family by rebuilding the relationships between the victims and intra-familial offenders.

Self-help and mutual aid groups have been providing support to adult survivors and families of the victims of child sexual abuse. Often operating with totally voluntary efforts, including support from assisting sponsoring professionals, these forms of help deserve to be recognized as legitimate forms of treatment. They require endorsement and sponsorship by trained counsellors and adequate funding support from governments. Evaluation of their effectiveness is required to support the position of these groups in the therapeutic community.

    There continues to be a need to fully debate and discuss different theoretical approaches to treatment. For example, although most therapists appear to favour a child-centred approach, particularly when the child has been abused by a family member, treatment that reflects family-centred strategies is also supported by many. The Badgley report conceptualizes a "child-centred" approach based upon three premises:

    As more and more is learned about the results of child sexual abuse in relation with its impact on individuals, predetermined treatment theories are likely to prove inadequate. Individual case assessments involving multidisciplinary expertise will likely be the most fruitful approach.

    Professionals who work in the child sexual abuse area suggest that offender treatment must be sensitive to victims. For example, the concept of restitution, the writing of a letter of apology (if such is desired by the victim), or the payment for treatment for the victim by the offender are ways in which the offender can demonstrate an awareness of the effects of the victimization.

That the Expert Advisory Committee on Healing and Treatment¹, in conjunction with experts in the field and appropriate government jurisdictions, develop a long-range plan for effective sex offender treatment strategies. This may involve supporting work that has already been completed, such as the Solicitor General working group, and/or initiating further consultation and research activity. The implementation of proposed changes will requireconsultation  and co-operation of all thegovernment jurisdictions involved. ¹ See Recommendation 7.

    There is a growing concern in the international community about coping with human problems for families where members are separated by being in different countries, particularly when a vulnerable member of the family may need special protection, support services or treatment. International Social Services (ISS) Canada, an international non-profit organization supported by Health and Welfare Canada, is part of an international network reaching around the world. The overall caseload includes an increasing number of cases involving child sexual abuse. Because sex offenders often move from jurisdiction to jurisdiction, ISS officials point to the need for international protocols regarding the sharing of information.

    The Special Advisor has looked primarily at information needs within Canada, but the international arena should not be overlooked, particularly when child sexual abuse is an unfortunate reality throughout the world.

Information Needed: Education, Training and Research

    The dramatic increase in the rate of disclosure and reporting of cases of child sexual abuse has found most professionals ill-prepared to deal with the needs of the many victims, their families and offenders. In the late 1970s and early 1980s, professionals in Canada interested in the field of child sexual abuse were trained primarily in the United States. As the 1980s progressed, training centres, in Canada began to focus on this issue, and curricula on child sexual abuse are now in place in several Canadian professional schools. Despite progress, the resources for training are still random and insufficient in most areas of the country.

    We are all still learning about the dynamics of child sexual abuse and how we should respond. Even with the advances in training made in the past several years, there will continue to be an ongoing need for training as our understanding evolves. For example, we have only just begun to talk with young male victims of abuse and to learn about their experiences. As the problem becomes more clearly defined, we will need to refine our approaches to provide the best support and service possible.

    Front-line workers are reporting that cases not only are increasing in numbers, but also seem more complex. As we learn more about the needs of victims and about the behaviours of offenders, we realize more about the intricacies of the dynamics of sexual abuse. Also because more cases are being prosecuted in the court, the preparation of young victims to testify is demanding more time and more specialized training for those who work with them.

    When one takes into account that the average tenure of a front-line child protection worker is about three years, the continuing need to train new workers becomes even more pronounced. It is essential to take steps to reduce burnout variables and to provide better support to reduce job turnover. Front-line professionals continually express their need for increased training; these people are under pressure to learn how to do their job better.

    All professionals involved in child sexual abuse cases, including judges, Crown Attorneys, defence lawyers, police, social workers, therapists, educators and health care providers, need to have a minimum standard of knowledge about child sexual abuse, its nature, symptoms, and possible manifestation and effects. Professional and in-service training are essential to shape appropriate professional response to the needs of the victims in the field.

    There must also be essential supportive professional consultation services for front-line workers. Child protection agencies are often short of resources, and consultation resources may therefore be especially limited. In some communities, an interdisciplinary hospital team, often augmented by community professionals, is available to provide consultation. Workers in rural or remote areas have limited opportunity for consultation with colleagues and more experienced professionals. In a small number of these communities, a local co-ordinating committee serves as a supportive reference group for professionals.

    While education and training are critical, they cannot be seen as the total solution to our inadequate response to child sexual abuse. In one mid-sized city, the caseload has increased from 23 cases to 300 cases in a six-year period. Such an increase is typical of what is happening across Canada. This increase of more than 1100% demands major training initiatives, and also an increase in numbers of workers.

    The volume of the work and the increasing complexity in types of cases sap at the energy and productivity of even the best-trained child protection teams. Inadequate backup and lack of professional support contribute to the isolation and frustration of an already overextended front-line staff. Given the paradox of inadequate training and such high standards required to provide supportive services to children, it is understandable that child protection workers bum out quickly.

    The extent of child sexual abuse and the range of response required to deal with its complexities demands the creation of multidisciplinary teams of professionals, with specialized training in child development and child sexual abuse and an understanding of the legal system.

    Finally, although we could learn much from the survivors of sexual abuse that could help fill this training gap, we must take care not to exploit those who have been victimized to satisfy the training needs of various professionals.

    Again, the issue of. providing support for training professionals, as it relates to service delivery, is largely in provincial/territorial jurisdiction. Because the training issue is so critical, recommendations in this chapter pertaining to jurisdictions beyond the federal realm, including the professionals and professional schools, are put forward respectfully so that they may be included in the policy and priority planning of the respective jurisdictions. It is hoped that these ideas may be useful in the important deliberations that lie ahead.

    In 1975, the Ontario government established the Child Abuse Prevention Program (CAPP), which led to community development initiatives and the establishment of local interagency co-ordinating committees on child abuse in some communities. The provincial government also provided training on dealing with child sexual abuse for child protection staff. By 1983, the government, interested professionals and the private sector joined forces in opening the Ontario Centre for the Prevention of Child Abuse, which quickly earned a reputation as a centre for excellence in Canada for dealing with the problem. In 1987, the centre became a private, non-profit charitable organization called the Institute for the Prevention of Child Abuse. It is a major trainer of child protection staff in Ontario, and does similar work on a contract basis for some other jurisdictions. Its programs, of a multidisciplinary nature, have made a significant contribution to training of professionals, consultation services, research and public education. In addition, the institute has taken a number of initiatives with respect to Bill C-15 and has provided learning opportunities for those in the justice system.

    The creation of the Institute for the Prevention of Child Abuse in Ontario has provided an important vehicle through which the province of Ontario has been able to expand multidisciplinary training activity in terms of both quantity and quality.

    The province of Manitoba has played a leadership role for some years in the area of child abuse. Canada's first major conference on child sexual abuse was held in Winnipeg in 1982, with provincial government sponsorship of local initiatives, and since then the province has placed an emphasis on better training. In addition, the province has acted upon many of the recommendations of the Reid-Sigurdson report^l and has followed through with a series of training initiatives for child protection workers, supervisors and other community-based workers. Reviews have been conducted of the curricula of relevant educational institutions. An integrated multidisciplinary training program is being investigated as a basis for future training in the province.

    The creation of a provincial Advisory Committee on Child Abuse in Manitoba and the appointment of a provincial Child Abuse Co-ordinator have strengthened intersectoral and interjurisdictional planning. Manitoba is, currently developing a three-year Treatment Plan for Child Abuse.

    In British Columbia, the justice Institute, with both federal and provincial support, has brought nationally and internationally recognized experts to the West Coast for conferences and has provided training opportunities to the rural and remote regions of the province. The concerns of native families have been a priority for the justice Institute. Much work has been done with aboriginal communities around the handling of conflict in relationships. The Attorney General's Office in British Columbia has provided leadership to professionals in the justice system across the country.

    A training course sponsored by the government of Quebec for professionals dealing with child sexual abuse was held in November 1987 in Montebello. Three provincial ministries of Health and Social Services, Justice, and the Solicitor General collaborated on a training program related to Bill C-15. Comprehensive kits were developed by Quebec government officials to assist with the training and are currently in use throughout the province.

    Alberta's Office for the Prevention of Family Violence has created linkages throughout the province for municipal child abuse committees and has earned an excellent reputation as a source of training information for a variety of professionals. The appointment of a child abuse co-ordinator in the Calgary region of Alberta's Department of Social Services has strengthened co-operation, co-ordination and training across several jurisdictions.

    Federal support has been instrumental in developing a broad range of training initiatives. A Saskatchewan-based training conference sponsored by the Saskatchewan Council For Children and Youth, titled Beyond Badgley, was held for western professionals. A recent province-wide training effort for child protection workers in Nova Scotia was developed by the Professional Association of Social Workers and the Institute for the Prevention of Child Abuse, supported by funding from Health and Welfare Canada. Child protection workers in New Brunswick have also been exposed to a comprehensive training program, sponsored with federal money and initiated by the provincial Child Welfare Association. The federal Department of Justice has had several public information resources prepared regarding Bill C-15 and they are now available.

    One result of these initiatives is that there is a readily discernible and growing network of Canadians who care about the children who have been sexually abused. Some of these people attended the National Workshop on Child Sexual Abuse: Reaching For Solutions, which was organized as part of the consultation process of the Special Advisor and held in Ottawa in May 1989.

    It can be seen that these initiatives are diverse and that much could be learned if the provincial/territorial governments could better share their experiences in the training area. These training initiatives are important. However, it must be emphasized that training programs cannot be limited to one- or two-day sessions and that they must be regularly repeated to permit training of new staff and a deepening and updating of expertise among existing staff.

                Multidisciplinary Training

    Inherent in appropriate education and training for child sexual abuse is a multidisciplinary approach. Professionals from a variety of settings must work together and must overcome traditional jurisdictional differences and professional rivalries if they are to be effective and helpful to children who are suffering the effects of abuse and neglect.

    Preparation limited to single professions tends to increase the isolation within a particular discipline. New professionals need to understand that it is impossible to work effectively alone. Reality calls for interdisciplinary co-operation and action. There should be no undertakings in child sexual abuse in any area, investigation, prosecution, treatment or prevention, without prior consultation with all the relevant disciplines.

    There is also a need to expand the scope of preparation in professional schools, with special emphasis on multidisciplinary training. Over the past few years, there has been an increase in contact and sharing of views among lawyers, police, social workers and treatment specialists regarding child protection and criminal justice issues. Further effort is needed in order that all those involved can develop a better appreciation of the scope and limitations of the systems involved. For example, all professionals who are likely to appear as witnesses in court must receive training related to the court system and their involvement in it. A basic understanding of the role of the courts in dealing with child abuse must be viewed as part of professional education for all relevant disciplines^l.

    Both the Sigurdson-Reid report² in Manitoba and the report of the Task Force on Family and Children's Services in Nova Scotia contain several recommendations related to the need for more comprehensive training programs of an interdisciplinary nature.

                The Need to Train People or Work in Rural and Remote Areas

    Given the paucity of resources in rural and remote areas, the need for multidisciplinary training for workers in these areas is particularly crucial. When staffs are small, it is important that every member of the team understands what needs to be done in terms of collecting information during the investigation, supporting the child and family, preparing for court and providing treatment. It is especially important for those who must work together on small teams to learn how to co-operate, to share responsibilities and to be supportive of one another.

    Associations representing the professionals who are active in dealing with child sexual abuse must take a stronger position in providing specific training in this area.

    Professional associations should also feature studies into child sexual abuse as a regular item in their bulletins and professional journals. They should work with each other in sponsoring and promoting training seminars that would encourage interdisciplinary co-operation. They should also encourage each professional governing body to review and update policies and curricula with reference to child sexual abuse.

    Universities and colleges must be encouraged to fulfil their roles in training and consultation. They should regularly revise their curricula to deal adequately with current knowledge concerning child abuse. In many cases, professional schools could offer staff appointments, assist with continuing education programs and provide resources that can assist with research and evaluation of new programs. Exchanges and linkages between the field and the academic setting can provide benefits in both directions; they can offer students opportunities for training and enhance the potential for community-based services to evaluate and improve their programs.

    Regional Resource Centres (see Recommendation 6) are being recommended to undertake important work in the area of child sexual abuse. These centres, which should become leaders for training initiatives, would employ on a regular or contractual basis small teams of experts in all of the major professions involved in dealing with child sexual abuse. Such teams would be instrumental in bringing training to members of professional groups.

    In any professional group, there are many who have been victimized sexually in childhood or as adults. Professionals who have had this life experience should seek the support or counselling they need to understand some of their own experiences and attitudes, especially if they intend to work with current child victims. With appropriate self-awareness, those who have been abused as children may have special contributions to make as adults.

    Keeping in mind that all sectors must be exposed to multidisciplinary training, there are also specific needs for each sector, as outlined in the following sections of this chapter.

    All police officers require a familiarity with the special skills and sensitivities needed for dealing with children during a child sexual abuse investigation. Experienced officers, particularly supervisory personnel, who have not had the opportunity for such orientation need to be aware of the realities of this type of case. Until now, spending priorities for police training have been on other areas of policing such as drunk driving and drugs. Child abuse and family violence have yet to be given such a priority.

    Police colleges have incorporated a modest program on dealing with child sexual abuse for new cadets. The Canadian Police College provides a week of training in domestic violence for selected senior officers; however, this is not enough to meet the needs of officers dealing with child sexual abuse. Given the numbers of calls that police must make in response to cases of child abuse, provision must be made for training every senior official who will be in a position to direct police policy and for every police officer who may need to respond to a report of sexual abuse.

    There are differences of opinion within the police community about the concept of "specialization" and "specialized training." Although there may be difficulties to overcome before a comprehensive strategy can be launched, the Special Advisor feels it is urgent for the issue to be addressed, in hopes that current difficulties can be overcome (the need for specialization of police officers is also dealt with in Chapter 5 on Child Sexual Abuse and the Justice System).

    That the Canadian Association of Chiefs of Police and the RCMP review police policy and practice related to the investigation of child sexual abuse and the necessary levels of expertise required by police officers in this area;

    That police departments support policies to ensure there are front-line specialists available for child abuse cases; and

    That, through the Canadian Police College, senior police officials be required to take an orientation program dealing with the area of child abuse.

    Some Canadian law schools offer optional courses in children's law (e.g., Queen's, Calgary, Dalhousie, Saskatchewan, Osgoode Hall). In a number of provinces, continuing legal education programs have dealt with Bill C-15 and child sexual abuse, though participation has been voluntary.

    That Canadian law schools ensure that all students acquire a basic understanding of the issues of domestic violence and child sexual abuse, perhaps in the context of their family law or criminal law courses. Interested students should have the opportunity to take advanced-level courses dealing with child sexual abuse and to acquire clinical experience in the area. Continuing legal education programs should regularly be offered on the subject of civil and criminal aspects of child sexual abuse.

    Bill C-15 has brought about a major change for those who have been working in the court system as counsellors. In the view of victim witness counsellors, the new law has opened the door for a greater degree of child-centredness during proceedings and a greater recognition of the need to provide support to the child during criminal proceedings. The preparation of children for the court experience has become a specialty area and demands caring and patience on the part of counsellors. Training for these court-based counsellors and Crown Attorneys must be provided.

    Crown Attorneys who understand the needs of children in court must be assigned to cases of child sexual abuse. They must be trained to be aware of the attention spans and anxieties of those who are very young. Their working relationships with court-based counsellors must be supportive for all who must proceed with such cases.

    That provincial ministries of the Attorneys General offer week-long training programs for Crown Attorneys, child protection investigators and court-based counsellors on adequate preparation for sensitivity of childvictims and on such issues as the use of videotapes.

    Training for investigators needs to include:

·     knowledge about child development and child sexual abuse;

·     interviewing skills with children about sexual abuse; and

·     comfort with interviewing and discussion about sexual matters with children.

                Training of Judges

    For a thorough discussion of the training needs of judges, refer to Chapter 5 on Child Sexual Abuse and the Justice System, especially Recommendation 35.

    Sexual offenders are at risk of reoffending throughout their entire lifetimes. It is recommended elsewhere in this report (Recommendation 40) that some sexual offenders remain on probation or parole for life. Probation and parole officers must understand the dynamics of child sexual abuse and the symptoms that may indicate an offender may be likely to commit another offence.

    That the responsible departments of government ensure that all probationand parole officers receive specialized training in child sexual abuse.

    Procedures must be in place to ensure that these officers are in regular contact with offenders and that all activities are closely monitored (see Chapter 5 Child Sexual Abuse and the Justice System).

    Good work has already been done by most provincial governments in enhancing the training of child protection workers. However, because the turnover rates are so high for people who work in these very stressful situations, the maintenance of such a level of training must be a priority.

    Most social work schools now include family violence and child welfare courses in their curricula, although these courses typically still are electives. There is no Canadian social work program that offers concentration in child welfare. The effect of this weakness in training means that graduates from professional social work schools are not adequately prepared to move directly into child protection work, let alone into the child abuse field. Community colleges offering social services programs similarly fail to offer specialist programs in this field. They should be encouraged to offer specialty concentration programs in child abuse.

    There is a shortage of child and adolescent psychiatrists in North America. Many of the psychiatrists who work in this field have inadequate training for dealing with victims of child sexual abuse and adolescent offenders. Further, it seems that psychiatrists active in this field often have poor working relationships with other professionals in this field, such as paediatricians, family doctors and psychiatrists.

    There is a desperate need for family doctors to be familiar with child sexual abuse, so they can effectively diagnose and treat victims. While medical schools are developing programs concerning child abuse, all too often the emphasis is on training paediatricians in this field. Family practitioners tend to receive relatively little training on child abuse, even though they are often in the best position to make an initial report. Further, in some localities, family physicians are involved in treating victims and survivors. All family doctors should be informed of their legal obligations to report suspected child abuse and should also receive training about the diagnosis and treatment of abuse. Involving doctors in child abuse cases is addressed in Recommendation 11 in Chapter 3 on Systems: In Search of Harmony and Effectiveness.

    Health and Welfare Canada has a mandate to provide guidance to the provinces and territories regarding protocol development for health care professionals and hospitals. Considerable work has recently been undertaken in this area by a special federal-provincial committee^l so that those who have been victimized by family violence can be identified and referred to the appropriate place. As these broad-based initiatives are undertaken, there will be an increased call for training of hospital-related staff, including physicians, nurses and social workers. While much work has already been done in the area of physical abuse, there is a need for specialized training for cases of child sexual abuse.

    Mental health professionals who act as counsellors of adults should be alerted to the symptoms of survivors of child sexual abuse so that they can identify and treat those who are adult survivors. Whether the presenting problem is depression, marital troubles or a range of other symptoms, all who provide counselling in the community must know how to make the connections between the childhood experience and the effects that manifest themselves later in adulthood.

    Just as Health and Welfare Canada has played a lead role in developing guidelines for health institutions, departmental representatives have co-ordinated a recent committee to develop guidelines for community health workers for investigation of cases of sexual abuse.

    Community-based personnel, particularly public health nurses, are well placed to do preventive work and to aid in the identification of children who are suspected victims of abuse. Comprehensive training needs to be developed for these professionals and efforts must be made to establish linkages between community health workers and local child protection agencies.

    Workplaces are developing an increased response to personal problems of employees. Originally more focused on problems that have direct impact upon productivity, such as alcohol and drug abuse, employee assistance counsellors are now hearing from clients who are struggling with family-related issues. Women who are battered, who are concerned about others they love who are victims, or who may be trying to deal with the effects of their own childhood sexual victimization are increasingly turning to workplace counsellors for help.

    An excellent example of the possible initiatives for training for employee assistance counsellors about child abuse and family violence has taken place within the federal Department of Public Works^l. A model has been developed that could be replicated throughout the federal government and that could provide added impetus to the work being undertaken in other non-government workplace counselling settings. Similar training should be undertaken in the private sector with workplace counsellors.

    That Health and Welfare Canada, in conjunction with provincial/territorial governments, ensure that appropriate training concerning the identification and treatment of victims of child sexual abuse is available and encouraged for those professionals who are working on the front line of family service, such as family counsellors, public health nurses and workplace counsellors.

    Child abuse professionals sometimes forget that there are large networks of other professionals, paraprofessionals and volunteers who can be supportive to the child and helpful to the process of healing. The potential for developing this network for prevention and public awareness is described in some detail in Chapter 4 on Public Awareness and Primary Prevention. There are specific training needs that must be addressed for the members of these groups, including services for children with various types of disabilities.

    These professionals include school teachers, daycare workers, guidance counsellors, youth leaders, camp counsellors, church leaders and youth workers. These people who care for children and who are willing to be trained for a helpful role are too often overlooked. They are part of the natural helping networks in which concerned citizens have already demonstrated a commitment to children.

    It is very unusual for abused children to have immediate access to police or child protection services. Abused children often initially disclose to a person like a teacher or a youth worker. The people who need the training about how to receive a disclosure are the caregivers who work with children on a daily basis.

    As these people are most likely to receive the disclosure, they should- receive basic training to listen carefully, to reassure the child, to record the child's statement accurately and to report immediately to the appropriate authorities. They must know that their duty is to make the report and to be supportive on an ongoing basis. But they must also understand that the job of carrying out the investigation and actually doing treatment with the child is a job that must be left to those who are specially trained as experts in child abuse.

    Some school systems have made efforts to, develop policies and to train their teaching staff about child abuse. It has long been acknowledged that teachers have a responsibility to report suspected child abuse or neglect to the appropriate authorities. It is apparent that training to date has not been extensive enough. Seminars and workshops must be held to provide accurate information to school personnel. Such seminars should also be opportunities for police and child protection officials to establish working relationships with these professionals to deal with cases of suspected child abuse or neglect. With this kind of multidisciplinary co-operation, the roles of each professional should be clarified and liaison should be enhanced in the best interests of the children. Better information and training may allay some of the misconceptions held by some professionals about false allegations.

    Some churches have held discussion groups about child abuse and family violence issues. The good results of these training activities need to be emulated in all regions of the country and introduced in a comprehensive fashion to all institutions where those in helping networks can play an active role in the prevention and identification of child abuse. A recent publication of the Ecumenical Family Ministries, Ending Violence in Families¹ has led to workshops in the theological colleges and in many Canadian provinces to train church leaders and members of the clergy. The Church Council on Justice and Corrections has published a manual² and training materials that critically examine the historical role of religion in encouraging patriarchal values and issues of domestic violence.

    Professional schools and colleges should ensure that those who will work with children are competent to respond to cases of child sexual abuse disclosure, using a humane child-centred approach consistent with establishedcommunity protocols and the laws of the land.

    A new service in Canada, the Kids Help Line, organized by the Canadian Children's Foundation in May 1989, has drawn extensive response. In its first three months, 15,500 calls were received, covering a wide range of concerns. This service, staffed by professionals, is available to children in every part of Canada, through an 800 number and calls come from rural and remote areas as well as from urban areas.

    The number of calls, as well as the serious nature of them, including suicide threats, indicates the degree of trauma existing. This service is available to children in both official languages on an anonymous basis.

    It has been said earlier in this report that child sexual abuse as a topic in the literature was a subject in its infancy only a brief decade ago. Most of the research in the child sexual abuse area has been generated only during the 1980s. In fact, many of the research findings have not yet been published and are therefore not yet available for general consumption or adoption by practitioners. It also seems that many good research studies will remain difficult to access because not all findings will make their way into print, as there are not enough journals dealing intensively with this issue.

    Most of the new information about child sexual abuse has been generated in the United States. There have been few major research projects in Canada. However, the data generated by the Badgley committee and by subsequent studies carried out by Canadian authors have been received by a supportive international audience of scholars. We may have only just begun, but our beginnings are laudable.

    The function of research must be to validate and clarify the effectiveness of current initiatives, including public awareness programs, investigation techniques, treatment initiatives and the value of pilot programs. The aim is to expand professional expertise, knowledge and information about current issues and activities. Over the next few years, the task will be to refine the research and evaluation agendas related to child sexual abuse. In addition, suggestions have been made about the need for a national statistical data base and research on specific areas such as the long-term effects of child sexual abuse, false allegations, and the effectiveness of bringing together several types of treatment on difficult cases.

    The paucity of resources to support and fund research in child sexual abuse has also hindered research in this area. Practitioners and researchers often end up competing with one another for the few dollars that are available. It may seem difficult to argue for more research when we are not able to serve the children who are hurting today. Nevertheless, ongoing research must be a priority. There must be more opportunities for scholars to exchange information and identify priorities for research.

    There are few national mechanisms for gathering information about child sexual abuse. Although Health and Welfare Canada, the federal Department of justice and Statistics Canada are well placed to assist with the funding of research and the gathering of such information, we require an enhanced national program of research to be directed by experts who are well versed on the realities of the front line. The Canadian community looks to the federal level of government for leadership in declaring a long-term commitment of moneys for research and evaluation and in making available a national computerized data base that links Regional Resource Centres.

    In May 1987, a Canadian Child Sexual Abuse Research Conference was held at the University of Toronto^l. Ninety individuals from several professions and disciplines met to discuss research issues, needs and policy issues. The two and a half days of meetings were not sufficient to identify research priorities. However, some important conclusions were reached:

    It appears that the discussion that began in 1987 needs to be continued as part of a national effort to develop this area.

    Health and Welfare Canada has been instrumental in gathering some information that could lead to the further articulation of research priorities in a report describing the state of the art². It also underlines that there is a need for systematic and comprehensive research. However, the co-ordination of research and the information exchange associated with such work must be carried out at a national level and must be supported by the efforts of individual researchers.

    The current challenge for the federal government is to set out a timely and pragmatic agenda that is achievable and that has the full support of provinces/territories and the professionals in this field.

    The federal government has an important leadership role and funding role in the field of research. The federal government is looked to for provision of overall co-ordination and direction for research activity, so advancement in knowledge can be achieved and disseminated across Canada for use wherever possible in assisting policy direction, program services and legislative direction. The federal government needs to be very proactive in disseminating research findings.

    The present process of awarding research grants heavily favours the academic research community. There is no doubt that this specialized expertise is crucial. However, many non-governmental organizations and community groups need to be encouraged and enabled to participate more fully in research activity. The problem is that these organizations often lack research expertise. Thus it is important to join the interests of non-governmental organizations and community groups with the expertise of the academic researcher in a collaborative and effective manner. Research guidelines need to favour the involvement of resource people who have front-line experience and expertise in the child abuse area. Local co-ordinating committees and other front-line mechanisms need to participate actively in research activity so that new learnings are quickly absorbed and more readily disseminated among front-line practitioners.

    An emerging dilemma is whether to concentrate the initiatives of research in one structure or to view research initiatives as an integral part of each Regional Resource Centre so that all aspects of child sexual abuse are studied simultaneously (see Recommendation 6).

    The Special Advisor has concluded that at this initial stage it may be more appropriate to include research activities as an integral part of all Regional Resource Centres. In due course, it may be appropriate to establish a special National Research Centre.

    What does seem to be critical at this stage is the need for the research community, including those within government who have responsibility for research funding, to come together to develop an overall framework and comprehensive strategy for research activity so that there is a clearer focus and sense of direction for the future.

    There also needs to be greater consistency in funding policies and strategies so that everyone involved in research activity is working within a common framework and the focus of research has common premises.

    The federal child sexual abuse funding initiative was announced in 1986. Millions of dollars have been allocated to advance activity in the child sexual abuse area. During this time, provincial/territorial governments and a range of community-based organizations have participated in many additional projects that were not supported by federal money. Much information has been generated in a few brief years.

    However, it does not appear that a concerted effort was made to ensure that federally funded projects had a research and evaluation component. Although some departments have included evaluation components, there is no standardized approach. Nor does it appear that there is a systematic way of analysing or disseminating the tremendous amount of new information available through this child sexual abuse initiative.

    That federal government departments ensure innovative federally funded projects in child abuse have a research or evaluation component. Information in the form of research summaries should be systematically publishedand distributed to the community of practitioners and researchers in child sexual abuse.

    Various national associations and professions, including associations of disabled persons, have a major interest in research. Their research departments may have access to information that is regularly generated by front-line staff. The gathering of such information and the analysis of such data are activities that could be most productive, if there were a major sharing of information between associations.

    A major undertaking of the 1980s was the development of guidelines for professions to work together on domestic violence issues by an interdisciplinary group of national professional associations¹. This work initiated a new level of collaboration and discussion that should be maintained and developed for purposes of clarifying research issues. In addition, if this national leadership of professionals from across so many disciplines could be replicated at provincial or regional levels, the sharing of goals and objectives about research issues would be more fruitful.

    That Health and Welfare Canada continue to involve national associations, scholars, practitioners, professional groups, governmentagencies and research councils in dialogue about child sexual abuse and that, with the assistance of provincial/territorial governments,it encourage similar discussion at provincial/ territorial levels for the purposes of clarifyinginformation and research needs. Other relevant federal departments should also be involved. In addition, such discussions should includerepresentatives of the relevant national level research councils such as the social sciences andhumanities research council and the medicalresearch council.

    Statistics Canada has responsibility for the Uniform Crime Reporting program. The crime reporting system in Canada has been in effect for some 20 years, but it has not been specifically collecting information about child sexual abuse. Advances in reporting data are becoming possible as technology becomes more refined. The responsibilities of police in the reporting of information have also been increased. Within the next three years, it is expected that data provided by police in reporting crimes will yield more specific information about the ages of victims, the ages of offenders and the nature of offences.

    Health and Welfare Canada should ensure that it assists in making new information such as this accessible to those policy makers, researchers and professionals who can apply it.

    It may not be appropriate to rely exclusively on the criminal justice system and police to provide statistical information about the nature and extent of child abuse in Canada. Their data are inevitably skewed toward the cases that are easiest to prove and most serious in terms of immediate injury. Child protection agencies, child abuse registers and other systems in the provinces and territories also have vitally important data on child abuse. However, at present this information is very difficult to use on a national level, because of differences in definitions and reporting criteria.

    That the proposed Children's Bureau of Health and Welfare Canada, in conjunction with other federal departments and provincial/ territorial departments, establish a federal-provincial/territorial committee to establish common definitions related to child sexual abuse so that a national statistical data base can be established.

Aboriginal Communities¹

    For more than 100 years, Canadian society has tried and failed to assimilate aboriginal peoples. As our awareness about our past mistakes grows, we must be prepared to give back what we can to aboriginal communities. We all must share in the responsibility for providing assistance to aboriginal communities to resurrect aboriginal cultures, community values, self-respect and self-determination. While we set about this colossal task, native children continue to live with the effects of the past century of destructive experiences.

    For too many generations, the broader community has decided what is best for aboriginal people. It has been felt that aboriginal people should learn from us. We are now discovering that we cannot help aboriginal people unless we are prepared to learn from them. Before we help, we must come to understand aboriginal values, spirituality and culture.

    In my consultations as Special Advisor, I was struck by both the anger and the anguish of aboriginal women speaking about family violence and related issues. The Canadian public is gradually becoming aware that many of the problems being experienced today in aboriginal communities are attributable to the advent of European colonization. Canada's current Human Rights Commissioner recently noted that an Indian youngster has a better chance of ending up in prison than of completing university².

    Two native writers recently described these effects:

    The Special Advisor was told several times about the problem of sexual abuse during the era of residential schools for aboriginal children. Most of these schools have long since closed, but many aboriginal leaders see them as the origin of the sexual abuse of children in aboriginal communities, as well as a prime cause of a deterioration in parenting skills in aboriginal communities.

    The chances for an aboriginal child to grow into adulthood without a first-hand experience of abuse, alcoholism or violence are small. Canadians were first told in August 1989 about the events surrounding the 1971 sexual assault and murder of a 16-year-old native girl in The Pas, Manitoba. it appears that even though many white members of the community had known about the circumstances leading to her death, 18 years had passed before this information was revealed by those who had conspired in silence. The tragic reality is that many aboriginal people have been victimized and the non-aboriginal community has largely ignored their suffering.

    It must be understood that there are more than two dozen different aboriginal languages spoken in Canada. Each language represents a different community. Inuit people number only around 22,000 and live in small and remote communities of the far north. There are Status Indians who live mainly on reserves. There are others who have lost the Indian status over the years, but who continue to live with native values. The aboriginal community also represents those who are Métis. In addition, many natives have moved to urban areas where they are experiencing a new kind of isolation.

    It is important to understand the differences. For example, each Indian nation has its own spiritual base and, although there are similarities, healing that is appropriate for aboriginal people must take into account spirituality. There is also the question of language and the different ways in which aboriginal people express their feelings and ideas; these are often framed in ways different from those of European origin.

    The long-range future involves a redevelopment of the basic social and economic realities for many aboriginal communities. Without changing the conditions that reflect a lack of control and community involvement and that contribute to hopelessness, economic dependency, poverty, social assistance and other measures are but Band-Aids. Thus economic, community and personal development are the underpinnings to the long-range future for aboriginal children.

    There is consensus among leaders in the aboriginal communities that the issue of child sexual abuse should be addressed within a comprehensive framework, and not in isolation from family violence, alcohol and drug abuse, child and family services, etc.

    The resurgence of spirituality as a part of aboriginal cultures is a most positive development. It was evident during the National Strategy Workshop in Ottawa in May 1989 that the aboriginal culture offers a rich heritage that can be helpful to the non-aboriginal community.

    Given the many differences and sensitivities, any action taken to help aboriginal children must be done in consultation with aboriginal leadership. The Nechi Institute near Edmonton is an example of an impressive centre of aboriginal leadership for dealing with problems in aboriginal communities, including violence in the family and the sexual abuse of children.

    The approach taken at the institute is to view various problems in a comprehensive context, the first problem being alcoholism. As aboriginal communities move toward an increasing rate of sobriety, issues of family violence, including child sexual abuse, become paramount. The Nechi Institute stresses the importance of leadership and community development within the band, individual counselling for cases of disclosure, and the continued use of specialized outside consultants and experts working in partnership with aboriginal leadership.

    There is an additional concept of leadership in some aboriginal communities that must be recognized. This is the concept that every person is a co-leader with capacity to contribute to the well-being of all. Thus natural leaders must be involved in building the future. The process of dialogue, healing and development are cornerstones for the future. Attention must be given to assisting aboriginal leadership to become responsible for their own development and for shaping the future.

    Aboriginal people say that the question is often not to improve service, but to initiate service because there is so little. Aboriginal communities need access to trained staff, backup support services at a district level and special arrangements to deal with difficult travel conditions.

    Many band chiefs and councils who have been concentrating on issues like the settlement of land claims have not yet focused on child sexual abuse. Because some aboriginal leaders still do not recognize how crucial child and family services are to their communities, the problem is not being adequately addressed.

    It is especially difficult to deal with a particular social problem such as child sexual abuse in isolation when considering aboriginal communities. Inevitably, the many larger issues relating to relationships and policies among and between the various levels of government and the communities must also be considered. The complicated nature of social assistance requirements and provisions for status natives are highlighted in the 1989 Report of the federal Auditor General:

    The Auditor General concludes with this recommendation:

    The delivery of child protection services and support counselling varies. In some places, native child welfare agencies and service are available at the band or district level. In many instances, there is no aboriginal child welfare agency and services are delivered through regional, provincial or territorial child protection agencies, sometimes without native involvement.

    A major block in delivering effective service is the unresolved issue between the federal and provincial governments related to responsibility for "on-reserve" and "off-reserve services."

    Problems related to systems for aboriginal communities are particularly pronounced and are urgently needed to be resolved in order that long-range development under aboriginal leadership can be accomplished. Some of these issues include:

    Only a few years ago, it was very difficult to talk frankly in aboriginal communities about alcohol abuse. Now there is much more openness in discussing the problem, and many community education and treatment initiatives are evident. The sexual abuse of children is still a largely hidden phenomenon and is often denied. Adult abusers whose crime becomes known in their communities may consider themselves disgraced and may sometimes commit suicide. There could hardly be a more volatile or sensitive issue at present.

    Ultimately, it must be aboriginal leadership and communities that bring about better understanding of the issues and make it possible for treatment and other support functions to be developed. New and revised policies (self-government, Indian child and family services), strategies (economic development), and flexible funding arrangements are tools that can be used by bands, tribal councils and aboriginal organizations to develop a comprehensive and integrated approach to change the socio-economic dependencies in their communities. Effective long-term change will take at least one or two generations. In the meantime, there are some developments that can be pursued.

    With all these realities in mind, it is an urgent requirement that the federal government ensure that aboriginal leaders are assisted to develop an ongoing and long-range strategy to resolve a multitude of issues.

    In co-operation with the aboriginal peoples, the federal government should develop a mental health policy for aboriginal peoples by the year 2000. It should include provisions for Treaty Indians, and also should ensure comparable policies and services for non-treaty aboriginals.

    Aboriginal populations must develop their own solutions to long-range problems, including the provision of services to be delivered by their own people, thus providing viable alternatives to the inadequate services now provided.

    There needs to be a recognized body established that is primarily aboriginal in membership but with appropriate government representation involved. This Expert Advisory Committee needs to develop a five-year action plan that will address the concerns outlined.

        That the federal government appoint an Aboriginal Expert Advisory Committee on child abuse with a mandate to develop a five-year action plan^l to address child abuse and related issues in aboriginal constituencies. The Expert Advisory Committee should be made up of aboriginal representatives, including band councils, aboriginal associations, aboriginal workers, child abuse experts and representatives from appropriate government jurisdictions. The Expert Advisory Committee should hold national and/or regional consultations with representatives of aboriginal communities to ensure that the emerging plan reflects the realities and concerns of local communities.

    The Expert Advisory Committee should address a broad range of issues including the following:

    The Expert Advisory Committee should present a report within 18 months to the Minister of National Health and Welfare and through him to the other appropriate federal ministers.

    The report should outline a work plan with stages of development and the sequence of initiatives which will be required to make substantial improvement.

Emerging Concerns: Special Groups

    More attention needs to be addressed to particular populations because they may be even more vulnerable to child sexual abuse than the general population. These populations include disabled children, including physically, mentally, hearing or visually handicapped; very young children; children living in institutions; and children recently arrived in Canada, particularly from those from refugee camps. These populations also include those living in rural and remote communities.

    It is apparent that our systems lack the capacity to respond to all of the children in our society who have been the victims of abuse. It is even clearer that we lack sufficient understanding, training and resources to respond to children who have special needs. In most of these situations, the problem is not one of improving or enhancing existing services, but rather of creating a response capability that has not yet been fully conceptualized and of changing the conditions that contribute to increased vulnerability. Therefore, what follows are ideas that may serve as a useful reference point for embarking upon a development process to better serve these children.

    Children in care have been the consumers of our existing service delivery system. Some have experienced abuse by parents and by some of those who have been their guardians and custodians. The views of the National Youth In Care Network (NYICN) can help us understand some of the special problems faced by those who have been in institutional or residential settings. These are children who. have been taken into care by child welfare authorities, who have been in conflict with the law, or who suffer from an emotional disorder or are mentally handicapped.

    Young people come into the care of the child welfare system to be helped. In their own homes, they have often been the victims of abuse or neglect. In Ontario, almost 35% of children and youth enter care because of abuse; in Saskatchewan, recent statistics indicate that this is the case for almost 25% of the youth-in-care population. Many times, situations of poverty, drug or alcohol abuse, or violence between their parents have led to their needing protection.

    Often the victims of abuse by their parents or relatives, young people enter care expecting safety, but all too often tragically experience continuing abuse. The NYICN is a national organization established by and is run by and for young people who are or were in the care of the child welfare authorities across Canada. Thirty-two young people attending the 1989 NYICN annual meeting answered a questionnaire on sexual abuse. Twenty-one had been sexually abused, of whom eleven spoke about having been sexually abused while in care by foster parents, foster siblings or child care workers¹.

    A report by Ross Dawson, The Abuse of Children in Foster Care², also reveals a pattern of abuse in foster care, albeit with relatively low rates for the total population of child care, but disturbing figures for adolescents.

    Many provinces are studying their child-in-care programs, including foster homes and institutional settings. A 1987 report by the Saskatchewan Department of Social Services and the provincial Foster Parents Association^l highlights several needs: clearer program direction, better foster parent training and staff training, improved case planning, the need for additional resources, attention to standards for quality of care, procedures for investigating allegations of abuse, remuneration arrangements and public awareness programs.

    Another kind of abuse for these young people comes in a more subtle form. One young victim described that upon her entrance into care, it quickly became apparent that she was the focus of treatment and not the abuser, and she became the problem, not the abuser. "All of a sudden, I had all of these personal problems I never knew about before." The NYICN agrees:

    A pervasive fear among young people who have been abused is that they will become abusive parents. They know when their behaviour is abusive, and they wonder whether their feelings and behaviours are "normal." They understand that they need self-help programs to discuss their feelings, drug and alcohol rehabilitation services, parent education and childcare training, as well as extensive after-care support. Finally, they speak of the need to be empowered and to better understand relationships between men and women so that they can achieve stability, security and a sense of control over their lives.

    Young survivors feel alone and different, as though sexual abuse is something that has happened only to them. They feel very strongly that all people need to know that children are being abused and that it is wrong. The NYICN believes making Canadians fully aware of the extent and the nature of the problem of child sexual abuse has to be a priority.

    Caregivers who work with children and adolescents in a residential setting report that as many as 80% of children in care have been sexually abused at some point in their lives. The incidence for these children is much higher than that for children living in their own homes.

    Sometimes it is known that the children have been abused before entering care, but often it is not until the child arrives at a residential setting that there is a disclosure or a recognition of a long history of abuse. In turn, the residential setting may present risks for these children in terms of further abuse.

    When children finally reach the point of entering care, the history of abuse may have developed devastating effects, which results in severe acting out, sometimes in ways that are dangerous to other nearby children. All of this suggests special requirements:

    Professionals have been expressing increasing frustration at trying to help very young children in abusive families. These children are more fully hidden from public view than older children and it is of course much more difficult to understand what is happening to them. Unless they attend daycare or unless the family is visited by a public health nurse, abuse may continue undetected for their most vulnerable early years of life.

    It is very difficult to get a disclosure from very young victims, because they are more easily threatened or because they lack the understanding to know that they are victimized. Very young children also have difficulty in communicating their experiences.

    Even when there appears to be little doubt that very young children are being abused, prosecution often cannot proceed because of the age of the only witness - the child. Court professionals, including police, Crown Attorneys and judges, often do not respond with sensitivity to the needs of very young victims, and court environments continue in most communities to be particularly uncomfortable for young victims. The communication and investigation skills required of helping professionals must be finely honed to provide a special kind of support.

    To date, improvements in the social services and legal systems have largely ignored the problems of these victims. Our paternalistic or even hostile attitudes have kept disabled or handicapped victims of sexual abuse isolated from our response systems. As with very young victims, it has also been more difficult to supervise and counsel disabled children, especially those who are mentally disabled.

    A recent research study by the G. Allan Roeher Institute re-affirmed that this constituency is at higher risk than normal populations. The author, Charlene Senn, summarizes:

    In the light of the reforms of Bill C-15, further effort is needed to take advantage of this new legislation so that populations with special needs are dealt with more sensitively and adequately. This is an area that demands continued examination.

    For disabled and emotionally disturbed children then, the problems are complex. Knowing how best to respond to these children is a challenge that has not yet been resolved. However, some insights are emerging:

    The social and ethnic composition of Canada is changing. Major cities have felt the impact of absorbing families from different cultures at a rapidly increasing rate. When the children from these families attend Canadian schools, they sometimes may begin to separate from their families as they learn a new language and some of the values of North American children. Their parents meanwhile often have more difficulty in assimilating, and continue to communicate in their native languages and live according to their native values. The resulting differences sometimes lead to tension within these families.

    If a family comes from a culture where family violence has been a way of life or where sexual abuse has been prevalent, they need rapid reorientation to the laws and culture of Canada.

    In some cases, immigrant families have come from refugee camps where living conditions have prompted a destructive way of life. In these camps, children are usually the first to suffer victimization. Some of these children may need extensive therapy.

    Isolation, language differences, new pressures and conflicting values are barriers that can make it more difficult to provide treatment to children from new Canadian families. We do not fully understand how to provide the best intervention with these children. We also lack skilled workers who can communicate effectively in the languages of many new Canadians.

    That the Children's Bureau of Health and Welfare Canada, in conjunction with other federal departments, the provinces and territories and appropriate non-governmental associations and professional groups, establish a special task force or federal-provincial/territorial committee to examine the issues of child abuse for children in institutional settings, very young children, disabled and disturbed children and new Canadians. The task force should be asked to report within 18 months with comprehensive strategies to reduce the risk of child abuse for these children.

    A child who is abused and who lives in a city is very much alone in fear and isolation, even though others are physically present. A child who is abused and who lives in a rural or remote community is alone and often with little hope. There are not even people to call for help. Telephone lines may be operator-assisted and there is little hope for privacy in making a call for help. Sometimes the rural and remote areas have to wait for good weather so that police and special services can visit. Those who are used to larger communities can scarcely imagine the extent of the emotional and physical distances that keep abused and frightened people separated from needed help.

    Professional and other resources to deal with such problems are limited or non-existent. Those who are equipped to work with child sexual abuse also have to deal with all the other major problems that affect families and are often overwhelmed. Small police detachments cover extensive areas, and medical and health care services are restricted. Some teachers may take an interest but, because there are few therapists available, these teachers may end up carrying much of the burden of counselling. There are few facilities appropriate for interviewing young victims in small and isolated communities and investigators have to make use of any space available. Moreover, confidentiality is a serious problem because most people know each other.

    In rural and remote areas of Canada, resources are extended beyond the breaking point. Victims, their families and the offenders cannot be treated within their own communities and the time lag between disclosure and intervention can be many months long. The workers are exhausted.
 

    In remote areas, there is usually no permanent judicial presence; judges typically visit remote communities only for court sittings. Complaints about long delays in hearing cases are common. Particularly in cases where the victim and alleged offender cannot escape seeing one another regularly, the long delay adds trauma. In some localities, investigators also are flown in. For others, the victim and the offender are flown out, often long distances, to centres that are strange to them for support and treatment.

    Such communities might find the following suggestions helpful.

    That the Children's Bureau of Health and Welfare Canada in conjunction with the provinces and territories and appropriate non-governmental associations and professional groups establish a special task force or federal, provincial/territorial committee to examine the issue of child abuse in rural and remote communities, The task force should be asked to report within 18 months with comprehensive strategies to deal with child abuse in rural and remote settings. Stages of Implementation     As has been emphasized in this report, the strategies required to treat the victims of child abuse and to reduce its incidence are complex. The problems are related to patterns of behaviour and attitudes which have evolved over a long period of time. Realistically it will take several years of sustained effort by all levels of government, various disciplines, many organizations and the community as a whole before significant progress is made.

    Co-ordination and system change are key themes in this report. Additional resources will also be required in some areas. It will not be feasible to implement all the required changes at the same time. In fact, considerable investigation in some areas and analysis are required before appropriate action can be taken. With these factors in mind, the Special Advisor recommends that a plan of staged implementation be adopted so that a sequence of activities may be undertaken over a number of years.

    Structure and system changes should be undertaken in the first years so that mechanisms are established to manage the long-term initiatives. These changes need to be firmly established so that program and service initiatives do not founder at a later stage. There are areas which require study, and better definition of the problems and solutions. These can be started in the first two years and then dealt with over a period of years as clarity emerges about what must be done. A staging strategy also is more feasible for those changes which require new or additional resources. An annual incremental approach will be more manageable at a time when all governments are financially constrained.

    It is recognized by the Special Advisor that government officials will need to study the implications of the various recommendations before finalizing an official response to the report and undertaking action.

    The need for swift action is critical, however. It is over five years since the release of the Badgley committee report. Although a number of its recommendations have been implemented, there is still a great deal to be done to implement a national strategy for combatting child sexual abuse. Many hundreds of people across Canada have contributed to the present review of this serious issue. Expectations are high that the federal government will give leadership and respond to the recommendations which have been put forward.

    It is important that governments not proceed solely with further internal study, but begin a carefully staged action program, which over time can have a major impact in combating child sexual abuse. The delicate matter of achieving federal-provincial/territorial agreement and managing cost escalation can be accomplished by consultation and by entering into a staged implementation program.

    The work plan needs to be viewed as an investment process where each stage is a building block as well as an investment in the future. In an era of scarce human and financial resources, significant change is possible only if a step-by-step strategy is followed. The work plan also needs to be viewed as an inclusive strategy, where every possible resource both inside and outside government, and at every level - local, regional, provincial, territorial and national - is encouraged to join together for a common cause.

    The suggestion of a staged implementation program is based on a number of premises. They are identified as follows:
  ·     There are aspects of child sexual abuse where there is enough experience and knowledge to enable specific initiatives to be undertaken immediately. In these areas it is proposed that Expert Advisory Committees, federal- provincial/territorial consultation mechanisms and community-based organizations be encouraged to deal with issues and solve problems within designated time periods.

    Further consultation must not simply mean further study and postponement of action. It means consultation to develop a plan of action. With these various factors in mind, a three-stage implementation plan is recommended.

    To help get the work plan under way, the first suggested step is to name the Minister of Health and Welfare Canada as the Minister Responsible for Children (see Recommendation 1) Health and Welfare Canada can then begin to implement a work plan under the Minister's direction to ensure that adequate steps are taken to deal with the Special Advisor's report.

    The first six months following the release of the report will be needed for study and analysis by government officials. This can be considered Stage One.

    That within six months of the release of this report, the federal government should issue a statement indicating what action it intends to take in response to the report's recommendations.

    There are several activities which are already under way and which need to be sustained or in some cases expanded.

    Stage Two is the period when structured changes should be completed, to facilitate the long-term agenda. Expert Advisory Committees and task forces/committees should be established and begin their work. Finally, the complicated task of developing a staged cost-sharing program should be initiated. Because many areas of work will require the close collaboration of federal and provincial/territorial governments, the pattern of ongoing consultation and planning needs to be put in place.

    Stage Three is proposed as the following three years during which longer-range activity will set the stage for a continuing program of solutions to combat child sexual abuse.

    As implementation proceeds, it will become much clearer what continuing efforts of a long-term nature are required. A number of the recommendations have to do with getting started on a program that will continue over several years. Each year the federal government will be better equipped to outline targets for change and to indicate its continuing commitment to long-range solutions.

    That the federal government publish an annual report describing its progress in combating child abuse.

    The federal government has well established precedents for issuing annual reports regarding special initiatives. One example is the response to Obstacles, the 1981 report of the Special Parliamentary Committee for the Disabled and the Handicapped. The federal government issues an annual report of its progress in implementing that committee's recommendations. A commitment to releasing annual reports related to the Special Advisor's report and combating child sexual abuse should help dispel the notion that the report may be destined to "gather dust on the shelf." Eventually these reports may be expanded to deal with a full range of children's issues and the United Nations Convention.

    Following are the elements that should be addressed beyond 1995:

    The following chart outlines the proposed work to be done in each of the three stages by various jurisdictions.

Chart of Implementation
Health and Welfare Canada

Stage 1: The First Six Months

Rec. 1 (Chapter 3)
Minister of National Health
and Welfare is designated
Minister for Children

Rec. 73 (Chapter 10)
Government responds to the
Special Advisor's report

Current Initiatives to be continued

(Chapter 3)
Federal Interdepartmental
Committee on Family
Violence

Rec. 14 (Chapter 4)
Support for National Film
Board Family Violence
Collection

Rec. 50 (Chapter 5)
Voluntary sector
organizations continue
to deal with child abuse
with HWC support

Rec. 55 (Chapter 6)
Mental Health Committee
completes its work

Rec. 59 (Chapter 6)
Federal departments
continue to fund research
and evaluation studies

Rec. 68 (Chapter 7)
Ongoing consultations with
all sectors to clarify information and research

Other Federal Departments

(Chapter 3)
Federal Interdepartmental
Committee on Family
Violence

Rec. 27 (Chapter 5)
Initiatives related to
education, monitoring,
re implementing
Bill C-15

Rec. 28 (Chapter 5)
Charter challenges to
Bill C-15 are defended

Rec. 59 (Chapter 6)
Federal departments continue
to fund research and evaluation studies

Rec. 68 (Chapter 7)
Ongoing consultations
with all sectors to clarify
information and research

Provinces/Territories

Rec. 9 (Chapter 3)
Interdepartmental
co-ordination

Rec. 15 (Chapter 4)
Dialogue of Council of
Ministers of Education
and Education Associations
re child sexual abuse

Rec. 16 (Chapter 4)
Education jurisdictions
continue to expand
child safety programs

Rec. 31 (Chapter 5)
Implementation of
Bill C-15

Rec. 48 (Chapter 5)
Compensation from
Criminal Injuries
Compensation Boards
is fully utilized

Rec. 55 (Chapter 6)
Mental Health Committee
completes its work

Community/Professions Schools

Rec. 17 (Chapter 4)
Community awareness
programs are expanded
with support from all
levels of government

Rec. 21, 22 (Chapter 4)
Churches and children
and youth organizations increase
activities of child
abuse education and
prevention, screening,
etc.

Stage 2: The Next Eighteen to Twenty-Four Months

Health and Welfare Canada

Rec. 2, 3 (Chapter 3)
A responsibility centre
for children in HWC
is set up

Rec. 2 (Chapter 3)
Ongoing discussions with
provinces and territories
are instituted

Rec. 2 (Chapter 3)
Analysis of ratifying and
implementing United
Nations Convention on
the Rights of the Child
is completed

Rec. 4 (Chapter 3)
National Resource Centre
is set up

Rec. 5 (Chapter 3)
Assistance is given to the
development of a non-governmental
coalition

Rec. 6 (Chapter 3)
Location of first three
Regional Resource Centres
is selected

Rec. 7 (Chapter 3)
Four Expert Advisory
Committees are established

Rec. 8 (Chapter 3)
In consultation with
provinces/territories, plan
for a new cost-sharing
program is developed

Rec. 57 (Chapter 6)
Federal government
in partnership with
provinces/territories
studies particular
problems in providing
treatment services to
rural and remote
communities

Rec. 69 (Chapter 7)
Initiative is taken in
consultation with other
federal and provincial/
territorial jurisdictions to
establish a national
statistical data base

Rec. 70 (Chapter 8)
Aboriginal Expert
Advisory Committee
begins consultations

Rec. 71 (Chapter 9)
Special task force/
committee begins work
in studying the needs of
children in high-risk groups

Rec. 72 (Chapter 9)
Special task force/committee
begins work on strategies to
meet needs in rural and
remote communities

Rec. 74 (Chapter 10)
Annual report by the
federal government
regarding child sexual
abuse is prepared and released

Other Federal Departments

Rec. 18 (Chapter 4)
Justice department
completes preparation
of child pornography
legislation for introduction
to Parliament

Rec. 19 (Chapter 4)
CRTC develops policy
to reduce violence and
sexually exploitive
broadcasting

Rec. 29, 30 (Chapter 5)
Further changes to the
Criminal Code and the
Evidence Act by Justice
department are prepared for 1992 review
by Parliament

Rec. 34 (Chapter 5)
Architectural study re
courtrooms and courthouses
is commissioned

Rec. 35, 37 (Chapter 5)
National judicial Education
Centres incorporate materials
for training of judges,
and educational programs
are further developed

Rec. 36 (Chapter 5)
Justice department funds
study regarding ethical
issues for defence counsel

Rec. 46 (Chapter 5)
Leadership is undertaken
by Justice department in
establishing Unified Family
Courts across Canada

Rec. 49 (Chapter 5)
Court role in ordering
compensation to victims
is studied

Rec. 51 (Chapter 5)
Solicitor General and
Privacy Commission
ensure permission for
disclosures of criminal
offence records related
to abuse, for those
seeking positions of
responsibility for
children

Rec. 67 (Chapter 7)
All federal departments
ensure evaluation component
is included in
innovative projects
which are federally
funded

Provinces/Territories

Rec. 10 (Chapter 3)
Assessment is undertaken
to strengthen local
co-ordinating committees
for child abuse
co-ordinators

Rec. 13 (Chapter 3)
Role in monitoring the
effectiveness of children's
services is expanded

Rec. 23 (Chapter 5)
Charging policy is
reviewed and updated

Rec. 24 (Chapter 5)
Protocols address the
delay of treatment

Rec. 26 (Chapter 5)
Policies and legislation
regarding autopsy are
reviewed

Rec. 29,32 (Chapter 5)
All jurisdictions establish
policies re expert
witnesses

Rec. 33 (Chapter 5)
Policies are in place to
give priority to the
scheduling of child
sexual abuse cases

Rec. 43, 44 (Chapter 5)
Legislation is amended
regarding giving evidence
in civil cases, parallel
proceedings and the use
of transcripts

Rec. 25, 45 (Chapter 5)
Rec. 61, 63, 64 (Chapter 7)
Policies and practices to
ensure front-line personnel
receive specialized training
are drawn up

Rec. 47 (Chapter 5)
Legislation is amended to
permit civil suits beyond
current statute of limitations

Rec. 52 (Chapter 5)
Screening mechanisms to
use child abuse registers
established with federal
support are put in place

Rec. 53 (Chapter 5)
Common definitions for
identifying and registering
child abusers are developed

Rec. 54 (Chapter 6)
Healing needs of adult
survivors are recognized

Rec. 56 (Chapter 6)
Gaps in services are
assessed and changes
are implemented

Rec. 58 (Chapter 6)
Policies to share healing
strategies for victims with
other appropriate caregivers
are reviewed

Rec. 62, 63, 65, 66 (Chapter 7)
Comprehensive program for
ongoing training for front-line
professionals is designed

Community/Professions Schools

Rec. 11 (Chapter 3)
Medical Associations
review issues facing
medical community

Rec. 12 (Chapter 3)
Protocols at community
level are updated or developed

Rec. 20 (Chapter 4)
Professional associations
set out policies to
clarify member
responsibilities

Rec. 62, 65 (Chapter 7)
Professional schools
and colleges, including
law schools, ensure
curriculum is adequate
for professional
students

Stage 3: The Following Three Years

Health and Welfare Canada

Rec. 2 (Chapter 3)
Policy and implementation
plans for United Nations
Convention on the Rights
of the Child are completed

Rec. 6 (Chapter 3)
Two additional Regional
Resource Centres are
established

Rec. 7 (Chapter 3)
First reports from all
Expert Advisory
Committees are reviewed

Rec. 8 (Chapter 3)
Results from first year pilot
cost-shared programs are
assessed; second and third
year programs are initiated

Rec. 55 (Chapter 6)
Recommendations from
Mental Health Committee
are implemented

Rec. 67 (Chapter 7)
Findings from research
studies are widely circulated

Rec. 68 (Chapter 7)
Leadership in furthering
research activity continues

Rec. 71, 72 (Chapter 9)
Reports from special task
forces re special constituencies
and rural and remote committees
are completed

Rec. 74 (Chapter 10)
Annual report by the
federal government
regarding progress on
child sexual abuse
is received

Other Federal Departments

Rec. 39,30 (Chapter 5)
Justice department reports
to Parliament with recommendations
regarding the Criminal Code and the
Canada Evidence Act

Rec. 36 (Chapter 5)
Results of study regarding
ethical issues for defence
counsel in child sexual
abuse are distributed to
law societies for action

Rec. 38, 39 (Chapter 5)
Treatment programs are
expanded for child abusers
and experimental post-
charge programs are developed

Rec. 40, 41 (Chapter 5)
Legislation is introduced
to extend probation and
parole terms

Rec. 52 (Chapter 5)
Consultation with all
jurisdictions regarding
common approach for
identifying, registering
and screening child
abusers is completed

Rec. 60 (Chapter 6)

Strategies for effective
sex offender treatment
in institutions are
implemented

Provinces/Territories

Rec. 10 (Chapter 3)
Increased support is
given to community
co-ordinating mechanisms
and co-ordinators

Rec. 42 (Chapter 5)
Adequate services are
provided for 16- and
17-year-old adolescents

Rec. 38, 39 (Chapter 5)
Treatment programs are
expanded for child abusers
and experimental post-change programs are
developed

Rec. 40, 41 (Chapter 5)
Legislation is introduced
to extend probation and
parole terms

Rec. 48 (Chapter 5)
Provinces ensure access
of victims to compensation

Rec. 52 (Chapter 5)
Consultation with all
jurisdictions regarding
common approach for
identifying registering
and screening child
abusers is completed

Rec. 60 (Chapter 6)
Strategies for effective
sex offender treatment in
institutions are implemented

Community/Professions Schools

Rec. 5 (Chapter 3)
Recommendations are
received from Child
Advocacy Coalition for
further improvements

Rec. 6 (Chapter 3)
Reports are received
from established
Regional Resource
Centres

Roles and Responsibilities Of Federal and Provincial/Territorial Governments

    In major part, the prevention and management of family violence, including child sexual abuse, rests on the actions of four systems: health, social services, justice and education. These systems are interactive in their responses to family violence.

    The constitutional distribution of powers in Canada assigns to the provinces the major share of responsibility for these four systems. For instance, the provincial governments are responsible for the administration of justice and the administration and delivery of social and health services. Laws in relation to education are an exclusive provincial responsibility.

    However, the federal government plays a large financial role in supporting these provincial mandates by way of a range of equalization payments, block funding and cost-sharing agreements. In addition to its funding activity, the federal government undertakes a leadership role in social policy, is responsible for criminal law and procedure, delivers some direct services to certain populations (aboriginal peoples on-reserve, federal inmates, military personnel) and facilitates information dissemination and exchange, research and co-ordination. Through delegation of legislative authority, the federal government has transferred a number of powers to the Territories similar to those of the provinces.

    With respect to aboriginal populations, particularly in respect to Status Indians, the federal and provincial/territorial roles are subject to a very complex and wide-ranging series of agreements that sometimes include up to 100% funding, cost-sharing or the direct provision of services in the area of law enforcement, education and health. Recent trends toward self-government are shifting the responsibility of service delivery to Status Indians on-reserve and to the Inuit, with the federal government currently providing the majority of funding.

Prepared by:
The Special Advisor to the
Minister of National Health and Welfare
on Child Sexual Abuse

June 1990

Overview of the Federal Government's Response to the Badgley Report 1984 - 1989

                    Recommendation 1: Establish Office of Commissioner

                 Initiatives

    In December, 1986, the Deputy Minister of National Health and Welfare established the Family Violence Prevention Division as the centre for the co-ordination of federal initiatives on family violence, including child sexual abuse (CSA).

    In August, 1987, Mr. Rix Rogers was appointed for a two year period as Special Advisor to the Minister of National Health and Welfare on Child Sexual Abuse.

    The activities of the Special Advisor and the Family Violence Prevention Division are strengthened by the $20 Million allocated to National Health and Welfare in June, 1986, for funding initiatives to address child sexual abuse over a five year period.

    To date, the Department has co-ordinated funding for 198 projects, workshops, seminars and other activities aimed at governmental, and non-governmental officials, professionals and the public working in/ concerned with child sexual abuse.

    Development and implementation of a continuing national program of public education and health promotion relative to prevention.

    To date, no large scale public information campaign on child sexual abuse prevention has been implemented. Rather, priority has been given to programs directed towards education and skill development of service providers working in the field. The primary reason for this is that broad-based public information campaigns would create increased demand on service providers which they would not be equipped to meet.

    The Family Violence Prevention Division's National Clearinghouse on Family Violence provides, proactively, a variety of general information and technical materials on child sexual abuse to governmental and non-governmental officials and professionals as well as to the general public. It has an extensive, automated collection of reference materials on child sexual abuse, as well as other forms of family violence. The Clearinghouse's strategy emphasizes reciprocal information exchange, aimed at encouraging active sharing of information and solutions among those working in the field. It will be actively involved in disseminating the finished products of projects funded under the Child Sexual Abuse Initiative.

    The Clearinghouse's printed resources are supplemented by a large collection of films and videos. It's Family Violence Film Collection has been a highly successful public education campaign. This collection of over 50 films on child sexual abuse and other forms of family violence has been viewed by over 4.8 million Canadians as of June 1988.

    The Clearinghouse pays the booking charges so that the films from this collection are available free of charge to the general public or professionals working in family violence issues through regional National Film Board offices.

    The Clearinghouse, in collaboration with the National Film Board, was involved in the telecast of the film To a Safer Place. The user's guide and the telecast notices for this film were disseminated by the Clearinghouse to over 17,000 people working in the field of family violence.

    In addition to the foregoing, a number of special projects funded by Health and Welfare under the Child Sexual Abuse Initiative have contributed to education and training for service providers and volunteers:

    "Put the Child First" is a project sponsored by the Canadian Council on Children and Youth (CCCY) under which a national preventive training package for youth serving organizations and their volunteers has been developed. CCCY is training eight national youth serving organizations who will in turn train their volunteers regarding child abuse.

    "Child Abuse Prevention Program " by the Canadian Red Cross Society - BC/Yukon Division is a prevention program which covers writing and printing of a manual for volunteers delivering the program to adolescents.

    "Family Violence Prevention Project" by the Community Child Abuse Council for Hamilton/Wentworth, Ontario has developed a curriculum based K-12 (OAC) family violence preventive education program.

    The Clinique de Protection de L'enfance of the Hopital Ste-Justine, Montreal has developed an Annotated Inventory of Child Sexual Abuse Prevention Programs. This comprehensive, bilingual publication is the first of its kind in Canada.

    The Maritime Parent Sexuality Education Project sponsored by the Canadian Association for Community Living is concerned with educating and training parents of individuals with a mental disability to teach and counsel their children about sexuality and appropriate socio-sexual behaviour. The project covers three provinces, New Brunswick, Nova Scotia and Prince Edward Island.

    "Think for Yourself". A Sexual Abuse Prevention Project for Hearing Impaired " sponsored by the Vancouver Society for the Deaf is a child sexual abuse prevention program aimed at the hearing impaired.

    A comprehensive law information program plan has been developed to ensure that Canadians are aware of and have access to information about the profound changes to the law regarding the sexual abuse of children. Present publications include a story book for children about disclosing sexual abuse entitled Secret of the Silver Horse, and a booklet for adults explaining what to do if a child discloses sexual abuse entitled, What To Do If A Child Tells You Of Sexual Abuse. There will also be a guide for social workers and other professionals containing detailed information on the new law.

    To facilitate the implementation of the amendments effected by Bill C-15, An Act to Amend the Criminal Code and the Canada Evidence Act, the Department has established a Demonstration Project Fund and a Child Sexual Abuse Public Legal Education and Information fund (PLEI).

    To date, several demonstration projects aimed at enhancing services for victim/witnesses in courts and testing the use of videotaping have already been funded.

    As well, funds have been allocated to various governmental and non-governmental organizations to hold conferences and develop workshops and training programs that provide information concerning the new legislation for justice personnel, police, social workers and other professional groups.

    The PLEI fund has been established to encourage provincial/ territorial governments and community/national organizations working with children, visible minorities and native peoples to produce public legal education materials pertaining to the recent amendments. To date several training programs have been funded.

    The above initiatives derive funding from $5 million allocated to justice in 1986 to be used for examination of the legislation with regard to prostitution and pornography as well as an evaluation of Bill C-15. This money is to be allocated over a four year period which commenced in 1986-87.

    A Missing Children's Registry, established in Ottawa, under the auspices of the RCMP, to assist police forces and concerned agencies in locating and identifying missing children. The Registry continues to serve as Canada's national clearinghouse on missing children;

    A National Symposium on Missing Children, held in Toronto in April 1986, to facilitate consultations with various levels of government, police and voluntary groups;

    The Missing Children Research Project, involving the Ministry Secretariat, RCMP Headquarters, and four police agencies in Montreal, Toronto, Edmonton, and the Surrey Detachment of the RCMP, was undertaken in September 1986 to increase our understanding of the extent and nature of the problem of missing children and its links with other problems such as family violence and child physical or sexual abuse. The final report is receiving widespread distribution.

    The Ministry has also funded a number of educational conferences addressing the problem of missing children:

    The Ministry has provided funding for various projects and programs relative to child sexual abuse including:

    The Ministry has financially assisted and actively participated in various conferences and workshops relative to child sexual abuse education that include:

    In August 1984, the Ministry established the National Victims Resource Centre to make a wide variety of information available to government and private agencies across Canada who are providing services to victims of crime, including child sexual abuse. In conjunction with Health and Welfare Canada's National Clearinghouse on Family Violence, the Centre was founded to help victims of crime deal more effectively with the consequences of their victimization. On April 1, 1989 the Resource Centre was officially transferred to the Department of justice. National Health and Welfare acquired the family violence portion of the centre for its National Clearinghouse on Family Violence.

    These recommendations have been responded to by An Act to Amend the Criminal Code and the Canada Evidence Act (Bill C-15) (see attached summary for details).

    S.C. 1987 c.24 An Act to Amend the Criminal Code and the Evidence Act (Bill C-1 5) came into force on January 1, 1988, gives effect to many of these recommendations.

    In response to the Committee, the Bill creates several new offenses in relation to children and young persons, which include, touching for a sexual purpose, invitation to sexual touching, and sexual exploitation. These offenses make it no longer necessary to show that sexual intercourse has taken place to obtain a conviction.

    Pursuant to recommendations of the Committee, the Bill also creates new and separate offenses of compelling someone to commit bestiality and committing bestiality in the presence of young persons.

    As well, the Criminal Code is amended to provide an additional and specific protection to young victims by the creation of a new offence of exposure of the genitals for a sexual purpose to a young person.

    The Badgley Committee recommended that the age of consent to acts of buggery be reduced from 21 years to 18 years of age and that the provision which makes 14 the age of criminal responsibility for incest and illicit sexual intercourse be repealed. Bill C-15 gives effect to both recommendations.

    Bill C-15 repealed three Criminal Code provisions which prevented the prosecution of certain sexual offenses after one year had elapsed from the time that the offence was committed.

    The Bill also extends the rules respecting recent complaint, evidence concerning the sexual activity of the complainant, and reputation evidence to cover all sexual offenses. As well, the defence of consent is no longer available to an accused charged with sexual assault with a weapon or aggravated sexual assault. The Badgley Committee recommended each of these changes.

    In addition to the creation of new offenses, amendments were made to the rules of evidence. Pursuant to the Committee's recommendations, amendments to the Criminal Code and the Canada Evidence Act have removed the need for corroboration before a conviction based only on the unsworn evidence of a child can be sustained and a procedure is now provided whereby if a child cannot be sworn or affirmed, he or she may still testify if able to communicate the evidence.

    The new legislation also addresses child prostitution. In keeping with the recommendations of the Badgley Report, two offenses were created to impose a heavier penalty for living off the avails of prostitution and to penalize customers of child prostitutes, in any context. (Adult prostitution is legal, in a limited context.)

    Legislation redefining the offence of street soliciting was passed in December 1985 and requires that a Parliamentary committee review the impact of the change. In April 1989, the House of Commons designated the Standing Committee on justice and Solicitor General for this purpose, and it is expected that the committee will begin its hearings in the fall. The review must be completed within a year after commencement.

    In order to support the review, the Department of Justice completed research assessing whether the amendment was achieving its purpose. A synthesis report, Street Prostitution: Assessing the Impact of the Law, has been prepared in French and English and was released August 1, 1989. One of the issues which the report addresses is the effect of the law on juvenile prostitutes.

    All the recommendations contained in the Badgley Report with respect to child pornography were reflected in Bill C-54, which was introduced into the House Of Commons on May 4,1987. Although the greater portion of the correspondence to the Minister regarding Bill C-54 was favorable, there was a strong negative reaction with respect to the definition of pornography and possible breaches of the Charter. At the same time, there was general agreement that the law should expressly prohibit pornography involving children or violence.

    With the dissolution of Parliament on October 1, 1988, the Bill died on the Order Paper. The inadequacies of the present law of obscenity remain and the government is determined to provide for more effective measures to curtail the spread of pornography involving children, as well as violent pornography.

                    Recommendation 16: Research into Sexually Transmitted Diseases (STDs)

    An Expert Interdisciplinary Advisory Committee on STDs in Children and Youths (EIAC - STDs) was established in the fall of 1986 with a 5-year mandate to address this issue. In November, 1986, this committee made sixteen recommendations pertaining to Sexually Transmitted Diseases in Children and Youths. The majority of the recommendations have and are being addressed under the co-ordination of the Laboratory Centre for Disease Control in Health and Welfare. Three projects to develop guidelines related to the treatment, management and examination of sexually transmitted diseases have been undertaken. As of October 1989, of 120 000 copies of Treatment Guidelines, 119 000 have been distributed to family physicians, gynaecologists, medical and nursing students, STD clinics and others. Fifty five thousand (55 000) copies of Diagnostic and Management Guidelines dealing with the examination of Sexually Abused Children have been similarly distributed.

    To date, funding has been provided for 12 Laboratory Centre for Disease Control (LCDC) projects dealing with STD's, including the following:

    The Canadian Hospital Association conducted a study to determine, identify and evaluate the existence and nature of hospital protocols for responding to cases of child sexual abuse and STDs in children and adolescents.

    The Canadian Nurses Association carried out a survey of STD curriculum in Canadian schools of nursing.

    McMaster University's School of Nursing is conducting a survey of health professional's attitudes and knowledge regarding STDs in children and youth.

    The Canadian Public Health Association undertook curriculum development, management and delivery of two pilot courses for professional training in STDs and child sexual abuse.

    The Laboratory Centre for Disease Control in Health and Welfare conducted its own survey to assess and evaluate the extent of STD education in Canadian schools of medicine.

    To provide for access to evidence of past incidents of child abuse by "past parents" to further protect the child from potentially repetitive abuse (e.g. S.28 of the Ontario Child Welfare Act). The federal government is not able to initiate provincial child welfare legislation.

    Protection of publication of victims names in Transcripts of court proceedings; legal reporting services to comply as well.

    To ensure compliance with Rec. 26 once implemented. (Note: This is shared federal-provincial jurisdiction.)

    Bill C-15 provides that a judge or justice may make his or her own motion or shall on application, make an order directing that the identity of the complainant or a witness who is under the age of eighteen years and any information that would disclose their identity shall not be published in any document or broadcast in any way.

    This non-publication order is available in respect of all sexual offenses.

    To the extent that the subsection makes the ban on publication mandatory upon application by a prosecutor or complainant, the Supreme Court has dealt with the issue that it goes against freedom of the press. Supreme Court has recently upheld the section under section 1 of the Constitution Act 1982, while acknowledging that it does limit freedom of the press.

    The Family Violence Prevention Division, in conjunction with the Special Advisor to the Minister on Child Sexual Abuse, hosted a National Workshop on Child Sexual Abuse in May, 1989 which brought together over 250 people working in the field of child sexual abuse.

    In June of 1989, the Family Violence Prevention Division convened a National Forum on Family Violence with over 400 people working with all forms of family violence (child abuse, wife abuse and abuse of the elderly).

    To date, the Department has co-ordinated funding for 45 national and provincial consultative workshops in the area of child sexual abuse.

                 Department of the Solicitor General

    In keeping with the Solicitor General's leadership role in policing and law enforcement, the Ministry has funded and participated in several national programs organized to improve the criminal justice response to child victims. The agenda of these conferences reflected, the recognition of the importance of child sexual abuse among the many problems faced by this vulnerable sector of our society:

    Symposium on Street Youth (1986; 1987), sponsored by Covenant House, Toronto, Ontario;

    A National Symposium on Missing Children was held in Toronto in April, 1986 to facilitate consultations with various levels of government, police and voluntary groups;

    A National Conference on Children in the Justice System was held in British Columbia, June 1988;

    The National Conference on Victim Assistance - The Canadian Perspective, May 1989, Calgary, Alberta;

    Child Find Canada's National Conference, November 2-4,1989, Calgary, Alberta.

    (Note: This is shared federal-provincial jurisdiction.)

    Co-ordinated funding for 11 projects, to date, to respond to recommendations on the need for uniform minimum standards of service in the investigation, assessment and care of sexually abused children, including the following:

    The Health Services Directorate of Health and Welfare has developed guidelines on child sexual abuse prevention and intervention for community workers.

    The New Brunswick's Department of Health and Community Services developed a multidisciplinary investigator's course on child sexual abuse. This two-week program involved the training of police, crown attorneys, child protection workers and other workers involved in the investigation of child sexual abuse.

    Under the auspices of the federal/ provincial territorial Advisory Committee on Institutional and Medical Services, a multidisciplinary group developed Guidelines for establishing standards: Health Care related to abuse, assault, neglect and family violence. These guidelines cover child abuse (physical, sexual and emotional), wife assault, rape and elder abuse.

                    Recommendation 30: Medical and Hospital Services

    Development of standard protocol (collection of information, examinations, recorded findings, etc. ... ). (Note: This is shared federal-provincial jurisdiction.)

    Co-ordinated funding for eight projects, to date, which facilitate the development of standard medical and hospital protocols for the collection of information, conduct of examinations, recording of findings and other necessary procedures. Most of these projects relate to protocols and guidelines for sexually-transmitted diseases.

    Relative to: specification of assessment procedures; development of standard protocols.
    Review of: operations; legal aspects of procedures; potential discontinuance unless rendered more effective. This recommendation falls under provincial jurisdiction.

    All activities related to victims of crime are within provincial jurisdiction. However, the activities of the Federal Provincial Task Force and subsequent Working Group on justice for Victims of Crime have had considerable impact on the level of awareness associated with compensation programs for victims.

    To provide explicitly for compensation of physical and emotional pain and suffering. (Note: This is shared federal-provincial jurisdiction.)

    The Minister of Justice announced on November 5,1987, a comprehensive $27.2 million federal initiative to assist victims of crime. Bill C-89, an Act to amend the Criminal Code, Victims of Crime received Royal assent on July 21, 1988 as S.C. 1988, c.30.

    Compensation costs are cost-shared by the Department of Justice with the provinces. Federal involvement is limited to cost-sharing to the extent of the number of crimes identified and listed in the Criminal Code (44 at present). New cost-sharing agreements with provinces/ territories have been renegotiated and await provincial concurrence.

    Uniform system of classification, standard core of information.

    Statistics Canada has the lead with respect to the Uniform Crime Reporting (UCR) survey which has been in place since 1962. Development of a new incident-based survey has been ongoing since 1984. This development takes advantage of computer technology currently in use in police departments to collect more comprehensive crime data.

    This new survey collects demographic information (age, sex) of both victims and suspects as well as detailed circumstances of the incident itself. A general phasing-in of the new survey is planned until 1992, at which point over 85% of crime data will be in the new incident based format. Selected data from the revised Uniform Crime Reporting survey will be available in the early part of 1990.

    N.B. This initiative operates under the guidance of the Canadian Centre for Justice Statistics which reports to a committee of Federal/ Provincial Deputy Ministers responsible for the administration of justice.

                    Department of Solicitor General

    The Missing Children's Registry became operational on July 6, 1986, under the auspices of RCMP Headquarters, pursuant to a request from the Ministry of the Solicitor General to create a Central Registry on Missing Children. It is linked to the Missing Persons File at the Canadian Police Information Centre (CPIC) and automatically receives an unsolicited message whenever a police department in Canada enters, removes or modifies a missing child case on CPIC. As Canada's national clearinghouse on missing children, the Registry facilitates contact between Canadian police agencies, provincial and federal departments, U.S. agencies, and through Interpol, all foreign police departments. It maintains contact with external affairs, Canada Customs and Immigration, U.S. Immigration and Naturalization Services and volunteer agencies. The Registry prepares and distributes an annual report on the nature and extent of the missing children problem in Canada.

                    Recommendation 36: Disease Classification Systems

    Expert Advisory Committee to review codes of the International Classification of Diseases, to develop a revised classification (physical injuries, emotional harms), to evaluate identification to encompass events or persons (e.g. incest).

    Preliminary consultations held with Nosology Reference Centre of Statistics Canada. Global revisions of International Classification of Diseases (ICD) expected in 1993.

    Expert Advisory Committee to recommend implementation of findings under 36, to review means of applying revised classification to services provided on an ambulatory basis, to make representation to the WHO to effect amendments to the International Classification of Diseases.

    Review of classification of sexual offenses against children and youths used by child protection services with a view to establishing a common core of information. (Note: This is shared federal-provincial jurisdiction.) No initiative yet undertaken.

    Review and assess all research undertaken/ funded by the Government of Canada dealing with sexual abuse and sexual offences against children and youths in the Criminal Code.

    a)     injuries to sexually abused children (efficiency of clinical programs, nature of long-term harms, effective prevention, detection and treatment);

    b)     STDs contracted by children (types and long-term risks);

    c)     long-term effects of exposure of children to pornography;

    d)     needs and treatment of convicted child sexual offenders;

    e)     recidivism of convicted child sexual offenders.

    National Health and Welfare has initiated a series of activities to respond to the recommendations in this category. To date, 129 projects have been funded to identify, review and organize existing information pertaining to child sexual abuse. Three (3) other projects are underway to investigate the many dimensions and effects of injuries and sexually transmitted diseases on sexually abused children. Examples of some of these projects are:

    The Canadian Child Welfare Association is producing a listing of treatment programs for child sex offenders in Canada.

    The Marymound School, Winnipeg, Manitoba is developing and evaluating a treatment model for adolescent male sexual abuse victims and offenders.

    Queen's University has produced a report on Street Youth and AIDS and STDs which examines some of the underlying factors such as child sexual abuse and family violence in general.

    The National Health Research Development Program and National Welfare Grants funded 26 literature reviews and annotated bibliographies in child sexual abuse. The reviews focussed on prevention, treatment, training and other issues such as organizational and community response to child sexual abuse. Some key issues researched included the following:

    Queen's University - assessment and treatment of the adult male child sexual abuser;

    Thistledown Regional Centre for Children and Adolescents - transitional residential treatment programs for incest offenders;

    University of Toronto - treatment of the male sexual offender;

    A number of research and pilot projects have been initiated by the Ministry relative to sexual offending and the treatment of sex offenders. As part of a comprehensive research project on family violence, information on the nature and incidence of child physical and sexual abuse and neglect is being collected from participating agencies in three Northern Alberta communities. As part of an interministerial review of Bill C-15, the Ministry, in conjunction with Health and Welfare Canada and the Department of Justice, is also involved in a project examining the criminal justice response to victims of child sexual abuse in the Province of Ontario. Issues related to training, education and interagency co-ordination of front-line professionals will be specifically addressed in these research initiatives.

    The Ministry has undertaken a program of corrections research that has included a survey of treatment programs for sex offenders in Canada and the U.S. as well as studies on the role of deviant sexual arousal in sexual offending and alternative techniques for measuring sexual arousal. In 1988, the Working Group with representatives from the Ministry Secretariat, the Correctional Service of Canada, the National Parole Board in collaboration with provincial and territorial officials, undertook an investigation of sex offender treatment in Canada. The Working Group conducted a comprehensive review of the treatment literature on sex offender treatment, held discussions with practitioners in programs across the country and prepared a report on its findings.

    To date, Health and Welfare has funded six projects to facilitate the development of special educational programs related to the risks associated with juvenile prostitution, including:

    Covenant House Second Symposium on Street Youth, a symposium to explore the links between running away and child abuse; missing children and child abuse; and discussion on the impact sexual abuse in childhood has on the development of the adult.

    National Consultation on juvenile Prostitution hosted by the Canadian Child Welfare Association was a multi-disciplinary conference which determined strategies of effective prevention and response to juvenile prostitution.

    To date Justice has funded 4 projects to facilitate the development of special education programs related to the problem of juvenile prostitution.

    Develop special programs to serve needs of young prostitutes, etc... (Note: This is provincial jurisdiction.)

    To reach needs of these youths (protection, counselling, education, job-training).

    Only one project established to date but result of initiatives undertaken under Rec. 41 may lead to federal/provincial and multidisciplinary undertakings of this nature:

    The Coastal Community Services of Victoria, British Columbia has received funding for a downtown emergency services co-ordinator to oversee a multiagency service to youth at risk in Victoria. The service will cover intervention, education and advocacy strategies designed to improve the health and life quality of street youth including juvenile prostitutes.

    Establish a federal/provincial cost-sharing program to enable establishment of special police force units with specific responsibilities relative to prostitution.

    A federal/provincial cost-sharing program has not been established. Many police forces have recognized the need for specialized training in the area of children as offenders, including child prostitution, and have begun to address this need. Several large municipal polices forces have created special units to address the problem. For example, the Metro Toronto Police Force has formed a juvenile Task Force to target juvenile prostitutes, particularly those runaway children who have joined the ranks of street youth engaged in illegal activities.

    With respect to juvenile prostitution (Recs. 46 and 48) and in response to the Badgley Committee, Bill C-15 contains specific legislation relating to juvenile prostitution which imposes a criminal sanction against customers of young persons and a harsher penalty for living on the avails of juvenile prostitution. In addition, the presumption that a person who lives with or is habitually in the company of prostitution is, in the absence of evidence to the contrary, living on the avails of prostitution will now apply when the evidence shows cohabitation or accompaniment of a single prostitute.

    (Note: This is federal-provincial jurisdiction.)

    The Badgley Committee recommended that the Criminal Code be amended to provide for a specific definition of child pornography and related offenses, including the possession of child pornography, its production, and the use, incitement or agreement to use persons under 18 in the production of pornography. The Department of justice funded a conference to discuss the current research on the effects of pornography in June 1988 in Montreal.

    Bill C-54 was introduced into the House of Commons on May 4,1987. Although the greater portion of the correspondence to the Minister regarding Bill C-54 was favorable, there was a strong negative reaction with respect to the definition of pornography and possible breaches of the Charter. At the same time, there was general agreement that the law should expressly prohibit pornography involving children or violence.

    With the dissolution of Parliament on October 1, 1988, the bill died on the Order Paper. The inadequacies of the present law of obscenity remain and the government is determined to provide for more effective measures to curtail the spread of pornography involving children, as well as violent pornography.

    Specific measures to be identified since Bill C-54 died on the Order Paper on October 1, 1988.

    Keep s.146(1) (Sexual intercourse with girl under 14) but reduce maximum from life to under 14 years.

    Keep s.146(2) (Sexual intercourse with female aged 14-16) but repeal s.146(2)(b) (needs previously chaste character) and s.146(3) (accused not guilty if not more to blame).

    Amend s.140 to specify that the consent of a child under 16 is no defence (rather than under 14, as at present) to charges under s.146 (sexual intercourse, girl under 14; aged 14 to 16).

    Since the passage of the Canadian Charter of Rights and Liberties, discrimination based on sex cannot be sustained. Accordingly, the retention of offenses in which only females can be victims and only males can be offenders would not survive a constitutional challenge if other avenues to achieve the same result can be found. Bill C-15 provides that any touching for a sexual purpose of a person aged under 14 would be a criminal offence (C-15, s.140). Similar acts committed by a person in a position of trust or responsibility on victims aged 14 but under 18 are also made criminal (C15, s.146). The defence of previously chaste character and of accused not more to blame are removed. Accused persons aged 12 or 13 will not be tried for an offence under s.140. The suggestion that a defence of consent may exist in a particular case can only be raised by accused 12 or more but under 16 involved with victims over 12 but under 14 and the accused must be less than two years older than their victim (C-15, s.139(2)). This limited defence cannot be raised by accused who are in a position of trust or authority.

                    Summary of Recommendation 3.4

    Repeal s.147 (no male person deemed to commit offence under s.146 if under the age of 14 years) and leave to general age of criminal responsibility, 12 years. S. 146 deals with sexual intercourse. For incest, see Recommendation 4.2.

                    Response

    S.147 of the Criminal Code has been repealed by C-15. Clause 2.

                    Summary of Recommendation 4.1

    Retain s.150 (incest) and amend s.150(3) to provide that if one partner in incest is under duress, that person shall be excluded from the operation of the section, rather than merely stating that the court shall not be required to impose any punishment.

                    Response

    No action has been taken. The present arrangement works well in practice and innocent victims of incestuous relationships are not proceeded against.

                    Summary of Recommendation 4.2

    Remove presumption of incapacity for males aged under 14; see also Recommendation 3.4.

                    Response

    S-147 of the Criminal Code has been repealed by C-15, Clause 2.

    Amend s.155 (buggery) to provide that buggery of a person under the age of 14 is punishable by a maximum sentence of under 14 years (rather than life, as at present); and of a person aged between 14 and 18 years punishable by a maximum sentence of five years (rather than life, as at present). Buggery of a person over 18 to be no longer criminal, if consented to.

                    Response

    The offence of buggery is renamed anal intercourse by C-15, s.154. The maximum penalty has been reduced to 10 years' imprisonment if prosecuted on indictment; the crime may also be prosecuted summarily. Anal intercourse involving persons under 18 continues to be criminal, unless the partners are married. Consensual anal intercourse by persons aged over 18 continues to be criminal where the act takes place in public or where more than two persons are involved.

    Consent of any person under 18 on whom the act is committed should not be a defence; the offender's mistake of age should not be a defence.

    The question of consent does not arise, as the offence is committed by both participants to the act. The defence of mistake as to age has been removed by C-15, s.139(4), unless the accused took all reasonable steps to determine the age of the partner.

                    Summary of Recommendation 6.2

    (i) Incitement or compulsion of another to commit bestiality to be indictable offence, maximum punishment under 14 years.

                    Response

    Under Bill C-15, s.155(2) this offence is a hybrid offence, punishable on indictment by a maximum of ten years' imprisonment, or on summary conviction.

                    Summary of Recommendation 6.2

    (ii) Committing an act of bestiality in the presence of a person under 18 years of age to be indictable, maximum sentence under 14 years.

                    Response

    Under Bill C-15, s.155(3) the commission of an act of bestiality in the presence of a child under 14 is a hybrid offence, punishable on indictment by a maximum of ten years' imprisonment, or by summary conviction.

                    Summary of Recommendation 6.3

    Mistake of age to be no defence where age is relevant to charges involving acts of bestiality.

                    Response

    The defence to charges under s.155(3) of the accused's mistake as to age has been removed by C-15, s. 139(4), unless the accused took all reasonable steps to determine the age of the person present.

                    Summary of Recommendation 7.1

    New offence of touching for a sexual purpose a young person in the genital or anal region with any part of the body or with any object.

                    Response

    Bill C-15, s.140 provides a similar offence. However, the touching need not be confined to the anal or genital region; any touching of a child for a sexual purpose is made criminal.
             Summary of Recommendation 7.2 Young person means under 16.                     Response

    The sexual touching offence under Bill C-15 is confined to touching of persons under 14.

                    Summary of Recommendation 7.3

    Consent of young person or accused's mistaken belief in age to be no defence.

                    Response

    The suggestion that a defence of consent may exist in a particular case can only be raised by accused 12 or more but under 16 involved with victims over 12 but under 14 and the accused must be less than two years older than the victim (C-15, s.139(2)). This limited defence cannot be raised by accused who are in a position of trust or authority. The defence to charges under s.155(3) of the accused's mistake as to age has been removed by C-15, s.139(4), unless the accused took all reasonable steps to determine the age of the person present.

                    Summary of Recommendation 8.1

    New offence of inciting, etc. for a sexual purpose a child to touch any person's body: indictable, maximum five years.

                    Response

    Bill C-15, s.141 created a similar offence: invitation to sexual touching. The maximum penalty is 10 years' imprisonment and the offence is also punishable on summary conviction.

                    Summary of Recommendation 8.2

    Child means under 14; touch means directly or indirectly.

                    Response

    Bill C-15, s.140 and 141 include these definitions.

                    Summary of Recommendation 8.3

    Mistaken belief in age over 14 no defence.

                    Response

    The defence to charges under s.141 of the accused's mistake as to age have been removed by C-15, s.139(4), unless the accused took all reasonable steps to determine the age of the person who was incited, etc. to touch.

                    Summary of Recommendation 9.1

    Person in position of trust who commits a sexual touching of young person guilty of indictable offence, maximum 10 years. Bill C-15, s.146(l)(a) created a similar offence.            Summary of Recommendation 9.2 Young person is under 18.                     Response

    This is the age provided for in Bill C-15.

                    Summary of Recommendation 9.3

    Touching is direct and indirect.

                    Response

    This is included in the definition of the offence.

                    Summary of Recommendation 9.4

    Consent of young person and mistake as to age are no defence.

                    Response

    The defence of consent is not excluded by s.139(1) of Bill C-15. The defence to charges under s.146 of the accused's mistake as to age have been removed by C-15, s.139(5), unless the accused took all reasonable steps to determine the age of the person touched.

                    Summary of Recommendation 9.5

    List of some of the relationships which establish the position of trust.

                    Response

    No such list is included in Bill C-15. Each case will be assessed to determine the existence of the relationship of trust or responsibility.

    Additional Note on the Sexual Exploitation Offence

    Although the Badgley Committee did not recommend it, a further offence was created by Bill C-15. This involves a person in a position of trust or responsibility inciting a young person to sexual touching. This extends the protection of children under 14 suggested by Recommendation 8 to persons aged 14 but under 18, with respect to persons in a position of trust.

                    Summary of Recommendation 10

    Retain s.169 of the Code and add an offence for those who expose their genitals to young person, i.e. under or appearing to be under 16.

                    Response

    Bill C-15, s.169(2) provides for a summary conviction offence of exposing the genitals for a sexual purpose to a person under 14 years of age. Accused persons aged 12 or 13 will not be tried for an offence under this section (s.139(3)).

                    Summary of Recommendation 11

    Loiter near places where children congregate - previous conviction at any time of any sexual offence.

                    Response

    The recommendation of the Badgley committee seems to have been predicated on there being some defect in the present provisions in the Criminal Code. Such a defect does not, in fact exist. Under C-15, s.175(l)(e) retains the loitering offence for those convicted of a list of offenses, sexual in nature, and any s.687 before 1982. The prohibition extends so long as the convicted adult offender has not been pardoned for the prior sexual offence. In the case of young offenders, the prohibition extends until the sentence for the crime has been completed or served.

                    Summary of Recommendation 12.1 and Recommendation 12.2

    Amend the Criminal Code to provide that conduct not involving force, threats or the fear of the application of force or the exercise of authority (such as, the giving of gifts) may nevertheless vitiate consent of a person under 14 to the commission of a sexual offence. The consent of a person under 14 should never be a defence.

                    Response

    The provisions of Bill C-15 indicate that the defence of consent is wholly excluded where children under 12 are the victims. Where children aged 12 but under 14 are concerned, Bill C-15 would limit the availability of the defence of consent to offenders 12 years of age or more but under 16 who are less than two years older than the complainant and are neither in a position of trust or authority towards the complainant, nor a person with whom the complainant is in a relationship of dependency.

                      Summary of Recommendation 13

    Consent should not be a defence to charges of sexual assault (Criminal Code. s.246.1) sexual assault with a weapon, etc. (Criminal Code D. s.246.2) or aggravated sexual assault (Criminal Code, s.246.3) on persons under 14.

                    Response

    As shown previously, the defence of consent is severely constrained by Bill C-15. However, even the limited defence of consent available to accused under 16 is not available to charges under Criminal Code s.246.2 or s.246.3.

                    Summary of Recommendation 14 Out-dated sections to be repealed:

S.141 and 168(2) - one-year limitation on time for prosecution

S.147 - presumption for under 14-year old males S.151 - seduction of female between 16 and 18 S.152 - seduction under promise of marriage S. 153 - illicit sexual intercourse S.154 - seduction of female passenger on vessel

    Bill C-15 has repealed these provisions, apart from those concerned with anal intercourse and bestiality, which have been re-drafted.

    Repeal s.253 - transmission of venereal disease.

                    Response

    This had been effected previously by Bill C-19 (1985).

                    Summary of Recommendation 17.1 to Recommendation 17.3

    Review criteria for the definition of a person as a dangerous offender and, in particular, indicate that physical or mental harm is not a requirement when a child victim of a sexual offence is involved. Remove mention of prediction of future behaviour in dangerous offender legislation. If Recommendation 17.1 and Recommendation 17.2 are rejected, legislate special dangerous sex offender provisions.

                    Response

    These recommendations are being studied further in light of the Report of the Canadian Sentencing Commission and the on-going study of correctional law.

                    Summary of Recommendation 18.1 to Recommendation 18.3

    Evidence of children. All children should be competent to testify, if they can respond to simply phrased questions. Children without sufficient verbal capacity should not testify; the court should instruct the trier of fact on the need for caution in accepting a child's testimony in any case where such an instruction seems necessary.

    Bill C-15 amended the Canada Evidence Act to give effect to these recommendations. If a child can communicate the evidence and promises to tell the truth, the evidence will be heard. The weight to be given to the evidence is a matter to be decided by the Judge.

                    Summary of Recommendation 19.1 to Recommendation 19.3

    Removal of necessity for corroboration of the unsworn testimony of a child and of testimony in trials of certain sexual offenses.

                    Response

    Effect is given to this recommendation by Bill C-15 Clause 11, 15 and 18.

                    Summary of Recommendation 20

    Abrogation of doctrine of recent complaint.

                    Response

    Effect is given to this recommendation by Bill C-15 Clause 11.

                    Summary of Recommendation 21

    Previous statement of child under 14 admissible, even if child does not testify. "Statement" means an oral or a recorded assertion.

                    Response

    The provisions of Bill C-15 do not go so far as the recommendations of the Badgley Committee. It may be noted that the Special committee on Pornography and Prostitution (the Fraser Committee), which had the advantage of reviewing the Badgley Recommendations before reporting, disagreed with the Badgley proposal. However the Bill C-15 does provide a Scheme, in s.16, by which children's and young person's previous statements can be introduced as evidence, provided that the statement is videotaped and that the child adopts the contents of the videotape.

                    Summary of Recommendation 22

    Previous sexual conduct inadmissible to impeach credibility as a witness in all sexual offenses.

                    Response

    Effect is given to this recommendation by Bill C-15, Clause 13.

                    Summary of Recommendation 23

    Removal of spousal communication as a bar to testimony.
 

    Effect is given to this recommendation by Bill C-15, Clause 17.

                    Summary of Recommendation 25

    Permit a judge to hold a trial in camera if this is required to obtain a full and candid presentation of a child's testimony.

                    Response

    The judge may already exclude public and press, if the administration of justice requires this. Obviously, the administration of justice is aided by a witness giving testimony in a candid manner.

                    Summary of Recommendation 26.1 to Recommendation 26.7

    Prevention of publication identifying information which would serve to identify "the child". Such prohibition should be automatic.

                    Response

    Bill C-15 provides that a judge or justice may on his or her own motion or shall on application, make an order directing that the identity of the complainant or a witness who is under the age of eighteen years and any information that would disclose their identity shall not be published in any document or broadcast in any way.

    This non-publication order is available in respect of all sexual offenses.

    To the extent that the subsection makes the ban on publication mandatory upon application by a prosecutor or complainant it has effect by reason of its inconsistency with the freedom of the press guarantee in subsection 2(b) of the Charter. The issue is currently before the Supreme Court of Canada.

                   Additional Note on Children's Evidence

    Bill C-15 provides that a child may testify behind a screen or outside the courtroom by means of closed-circuit television if in the opinion of a judge this is necessary to obtain a full and candid account of the acts complained of by the complainant. (S.442(2.1) and (2.2)).

                    Summary of Recommendation 44

    Cost-shared program should be established to provide special police squads to deal with aspects of juvenile prostitution.

                    Response

    This proposal is still receiving attention.

                    Summary of Recommendation 45

    Criminalize youth prostitution.

                    Response

    This recommendation has not been proceeded with. It may be noted that the Fraser Committee considered but did not support the Badgley recommendation.

                    Summary of Recommendation 46

    Criminalize the client of a youthful prostitution.

                    Response

    Effect is given to this recommendation by Bill C-15, Clause 9, s.195(4), which creates an indictable offence with a maximum penalty of 5 years imprisonment.

                    Summary of Recommendation 48.1

    In relation to procuring offenses, the phrase "illicit sexual intercourse" should be extended to include any sexual act.

                    Response

    Bill C-15 makes no change to the substantive procuring offence.

                    Summary of Recommendation 48.2 to Recommendation 48.5

    Being habitually in the company of only one prostitute (rather than "prostitutes", as at present) should suffice to raise the presumption that an accused is living on the avails of prostitution. The requirement that the offence be prosecuted within one year, and that corroboration be required, should be abrogated. Where the prostitute is under 18, the maximum penalty should be raised to 14 years, imprisonment; a minimum penalty of two years, imprisonment should also apply.

                    Response

    Effect is given to the recommendation on the presumption by Bill C-15, s.195(3). The necessity for prosecution within a year and for corroboration is done away with. The penalty for living on the avails of prostitutes under 18 is raised by Bill C-15, s.195(2) to 14 years: no minimum penalty is provided.

                    Summary of Recommendations 49.1 to 52

    These recommendations dealt with child pornography and were reflected in Bill C-54 which died on the Order Paper in October, 1988.

Recommendations

Chapter 3 - Systems in Search of Harmony and Effectiveness

                    Recommendation 1

    That the Minister of National Health and Welfare be designated as the minister responsible for children (in this context, the United Nations definition of "children" is used, whereby children are defined as persons under 18 years of age).

                    Recommendation 2

    That Health and Welfare Canada establish a Children's Bureau within the department, with a specific mandate and function as the responsibility centre within the federal government for a broad range of children's interests to include: · serving as the leadership centre for child-centredness within the federal government;

    That the Minister of National Health and Welfare recruit a member of his/her staff to serve in the field of children's services.

                    Recommendation 4

    That a National Resource Centre on Child Abuse, responsible to the Children's Bureau, be established by the federal government.

                    Recommendation 5

    That the Minister of National health and Welfare take steps to assist the development of a coalition in the non-governmental sector for the purpose of advocating for the well-being of children. Initially, funds should be provided for organizations to meet to develop the coalition, followed by an ongoing program to assist the non-governmental coalition to pursue a program to enhance the well-being of children.

                    Recommendation 6

    That the Minister of National Health and Welfare authorize support for five to seven Regional Resource Centres for the Prevention of Child Abuse across Canada. Rather than establishing entirely new centres, these centres may be additions or expansions, wherever feasible, to existing organizations. It is anticipated that common functions would be:

    That the Minister of National Health and Welfare, in consultation with other federal ministers, appoint Expert Advisory Committees related to child abuse, in the following areas: ·     public awareness and primary prevention; ·     justice issues; ·     healing and treatment; and ·     aboriginal concerns.     It is further proposed that the expert advisory committees report directly to the Minister of National Health and Welfare, and through him/ her to other federal ministers.

                    Recommendation 8

    That a federal-provincial/territorial cost-sharing program be established in the area of child abuse. Provisions should include:

    That, in order to support current initiatives within provincial/territorial jurisdictions, each province and territory ensure an appropriate interdepartmental mechanism is established to co-ordinate programs and resources to address child abuse issues.

                    Recommendation 10

    That provincial/territorial governments ensure that locally based coordinating committees are encouraged and supported, with the assistance of child abuse coordinators. These committees should facilitate the work of teams of workers from two or more agencies who may be responsible for such matters as investigation and treatment, and should ultimately be eligible for federal cost-sharing (see Recommendation 8).

                    Recommendation 11

    That the Canadian Medical Association, in conjunction with the provincial/territorial medical associations, carefully review the issues facing the medical profession in relation to child abuse and bring forward recommendations that will address these issues. The scope of the enquiry should include:

    That protocols be developed in each local community and rural region to facilitate interdisciplinary and interjurisdictional co-operation among service providers and various systems in combating child abuse.

                    Recommendation 13

    That the provinces and territories have an appropriate mechanism for independently monitoring services for children by government departments and their agents and for investigation of complaints by and on behalf of children, utilizing the best experiences already developed. The mandate should include a commitment to the declaration of principles on the handling of children's complaints, already adopted by the Conference of Canadian Ombudsmen, and the United Nations Convention on the Rights of the Child. The mechanism should include responsibility for monitoring services provided to children by government and on behalf of government by non-governmental and private organizations. Where such a mechanism is already in place, it must be ensured that it is independent and easily accessible. It should also publish an annual report regarding the government's performance in serving children.

Chapter 4 - Public Awareness and Primary Prevention

                Recommendation 14

    That the National Family Violence Film Collection be maintained and regularly updated so that the Canadian public has access to a broad range of excellent training films on child sexual abuse, and that the federal government continue its support of the National Film Board in the development of new films that are required to ensure public awareness. The CBC and other public broadcasters should regularly broadcast appropriate documentaries and dramas dealing with domestic violence and child abuse.

                    Recommendation 15

    That Health and Welfare Canada continue to work with the Council of Ministers of Education and the national education associations in developing long-range programs of values education; including those related to issues of patriarchy and hierarchy, domestic violence and sexual abuse.
 

    That provincial ministries of education, culture and recreation, and social services should continue to fund and plan strategies that will encourage an enhanced liaison between school personnel and community leaders, supported by developmentally appropriate preventive education programs, targeting pre-school through elementary to secondary levels of education. As well, teacher training must regularly deal with child sexual abuse.

                    Recommendation 17

    That the federal and provincial/territorial governments continue to support community-based primary prevention, public awareness programs so that all sectors of society are encouraged to participate in the prevention of child sexual abuse.

                    Recommendation 18

    That the federal Minister of Justice introduce legislation that will address the protection of children from the harmful effects of pornography, including a revision of the Criminal Code, harsher penalties for using children in the production of sexually explicit materials, stricter monitoring of our borders by Customs and Excise officials, and prohibitions on the distribution, possession or sale of pornographic materials to children. The process of enacting legislation dealing with issues related to children and child pornography should be separated from that dealing with adults.

                    Recommendation 19

    That as part of a general prevention strategy, the Canadian Radio-television and Telecommunications Commission (CRTC) assume a more active role in regulating broadcasting, with the goal of reducing the amount of violent and sexually exploitative material available to the general public.

                    Recommendation 20

    That all relevant professional associations be encouraged to develop policy with respect to child abuse and the role their professionals should play in the detection, treatment and prevention of abuse.

                    Recommendation 21

    That child and youth serving organizations in Canada continue and further develop their efforts to combat child abuse in Canada, including the addition of an official policy to prevent child abuse within their organization. Official policies should set out guidelines related to the selection, training and screening of leaders.

                    Recommendation 22

    That churches develop policies and procedures for responding appropriately to the problem of child sexual abuse. This includes the articulation of guidelines for church leaders to follow in the event of disclosures, training for appropriate pastoral counselling, procedures to follow in the event that church personnel are accused of sexual abuse, and comprehensive screening procedures for clergy and other personnel who work with children and youth.

Chapter 5 - Child Sexual Abuse and the Justice System
 

                    Recommendation 24

    That local protocols should address the problem of delay of treatment and ensure that children are not denied access to treatment pending resolution of criminal proceedings.

                    Recommendation 25

    That all police officers and supervisory personnel receive training in issues related to child sexual abuse and domestic violence; and That all police forces have officers who specialize in the handling of child sexual abuse cases and who have had specialized multidisciplinary training in programs of at least one week's duration.

                    Recommendation 26

    That legislation or policy in each Canadian jurisdiction require that an autopsy or investigation will normally be performed in cases where a child under the age of 18 dies as a result of suspected abuse, accident, homicide, suicide or unknown cause. The chief medical examiner should review all children's deaths where a child welfare agency has been involved.

                    Recommendation 27

    That the federal government fund and assess model programs, and collect and disseminate information about successes and problems with implementation of Bill C-15. In particular, the federal government should provide leadership in training, monitoring and disseminating information with regard to the use of videotapes, closed-circuit television and screens, and in the acceptance of child witnesses and their preparation and support in court.

                    Recommendation 28

    That the federal Department of Justice should monitor challenges to Bill C-15 under the Canadian Charter of Rights and Freedoms and actively defend the legislation against constitutional attack. The federal government should exercise its right of intervention in cases where there are Charter challenges, ensuring that trial judges receive appropriate evidence about the need for and validity of this type of legislation; and

    That, if provisions of the new law are ruled unconstitutional, they should be redrafted and re-enacted to meet constitutional requirements and not be simply abandoned.

                    Recommendation 29

    That Parliament reform the laws governing child sexual abuse prosecutions to:
 

    That Parliament study the improvement of the laws governing child sexual abuse prosecutions in particular, with reference to:
 

    That provincial/territorial governments take steps to ensure the effective implementation of Bill C-15, including jurisdiction-wide access to videotaping, closed-circuit TV, screens, child victim witness support programs, and Crown continuity in the handling of child abuse cases.

                    Recommendation 32

    That those responsible for the administration of justice in each jurisdiction ensure that policies are established to show sensitivity to the needs of professionals called upon to testify in child sexual abuse cases. There must be respect for professional needs when scheduling court appearances, as well as reasonable compensation.

                    Recommendation 33

    That provincial/territorial attorneys general develop policies to give priority in court scheduling to child sexual abuse cases.

                    Recommendation 34

    That the federal Department of Justice commission an architectural study of developments in courtroom and courthouse design and promote the construction of facilities sensitive to the needs of children and other vulnerable witnesses.

    That the National judicial Education Centre in Ottawa and provincial and national judges' associations ensure that judicial education programs include a study of the legal issues related to child sexual abuse, the dynamics of child abuse, and the needs and capabilities of child witnesses.

                    Recommendation 36

    That the federal Department of Justice fund a project to study the ethical issues for lawyers in child abuse cases and the ethics codes of other jurisdictions with regard to this type of case. A model ethics code for dealing with children and other vulnerable witnesses should be developed and circulated to all provincial/ territorial law societies and to the Canadian Bar Association for discussion and possible adoption.

                    Recommendation 37

    That sentencing judges receive information about the damaging long-term effects of child sexual abuse. This information should be imparted in judicial education programs as well as in individual cases through evidence at sentencing hearings.

                    Recommendation 38

    That federal and provincial/ territorial corrections departments ensure that convicted child abusers have access to treatment services;

    That provincial/territorial treatment services should eventually be eligible for federal cost-sharing (see Recommendation 8);

    That sentencing judges be provided with appropriate information about child abusers and available resources, and that they have the jurisdiction to order a pre-sentence assessment prepared by a mental health professional or assessment team;

    That federal legislation be amended to permit judges to order that treatment services be available to offenders; and

    That the pre-sentence assessment be forwarded to correctional authorities responsible for the management and treatment of the offender following sentencing.

                    Recommendation 39

    That provincial/ territorial justice and corrections officials be encouraged to establish experimental post-charge programs for dealing with offenders. These programs should be carefully studied and monitored. Their success may eventually justify legislative amendments and more widespread programs.

                    Recommendation 40

    That Parliament amend the Criminal Code to allow judges to order probation terms of up to life for those convicted of sexual offences; and That probation services ensure that those on probation orders actually comply with the terms of their orders.

                    Recommendation 41

    That parole legislation be amended to allow longer periods of supervision and support beyond the warrant expiry date for those released from prison following commission of a child sexual abuse offence. It is important that supervision and support in the community following release from custody apply to adolescent offenders sentenced under the Young Offenders Act;

    That parole staff and board members receive adequate training in the characteristics and treatment of those who sexually abuse children; and

    That released offenders have adequate access to community-based treatment resources.

                    Recommendation 42

    That provincial/territorial governments ensure that adequate services are provided to 16- and 17-year-old adolescents who have been victims of abuse. Consideration should be given in each jurisdiction to ensuring that child protection legislation and services are applicable until a youth reaches the age of 18.

                    Recommendation 43

    That provincial/ territorial governments amend their legislation to facilitate the giving of evidence by children in civil cases. They should expand the scope for use of videotapes and out-of-court statements of children, and should at least ensure that child witnesses receive all the benefits of Bill C-15.

                    Recommendation 44

    That child abuse protocols deal with issues related to parallel civil and criminal proceedings, and ensure that decisions about a child's welfare are not postponed solely to satisfy the needs of the criminal justice system; and That provincial/ territorial legislatures enact legislation to render admissible in a child protection case transcripts from a prior criminal trial.

                    Recommendation 45

    That police and child protection investigators have special training in the dynamics of abuse allegations in the context of parental custody or access disputes and that they continue to be involved as long as there is evidence of abuse sufficient to merit criminal proceedings or a risk to the child.

                    Recommendation 46

    That the federal government co-operate with the provincial/territorial governments to establish Unified Family Courts throughout Canada.

                    Recommendation 47

    That provincial/territorial legislatures amend their limitation statutes to permit civil damages suits for adult survivors of childhood sexual assaults.

                    Recommendation 48

    That provincial/territorial governments review the legislation and policies that govern Criminal Injuries Compensation Boards to ensure that victims of child sexual abuse receive compensation and support that recognizes the intangible nature of their injuries and their long-term needs;

    That consideration be given to allowing for compensation for abuse suffered prior to the establishment of the boards; and

    That the existence of the boards be publicized to victims of abuse and to those who work with them to ensure that all who are eligible can apply.

                    Recommendation 49

    That the federal Department of Justice study whether courts sentencing individuals convicted of child sexual abuse should have the jurisdiction to order that restitution be paid to victims, for example, to cover the cost of therapy.

                    Recommendation 50

    That Health and Welfare Canada and other federal departments continue to support programs that assist volunteer organizations to deal with child abuse, including development of policies related to the screening and supervision of volunteers, and that Health and Welfare Canada support efforts to ensure that all organizations working with children have policies related to child abuse, including screening and supervision of staff. Co-ordination at the federal level is important and should be the responsibility of the Children's Bureau.

                    Recommendation 51

    That the federal Department of the Solicitor General and the Office of the Privacy Commissioner ensure that legislation and policies permit the disclosure of criminal offence records relating to child abuse about persons applying for or occupying paid or volunteer positions of responsibility for children. Such information should be disclosed only with the consent of the individual concerned, although the failure to give consent for a criminal record check may be grounds for denying an individual a position of responsibility for children.

                    Recommendation 52

    That provincial/territorial governments establish screening mechanisms to ensure that those with a history of child abuse do not assume positions of responsibility for children. The screening should utilize registers that identify abusers on the basis of a civil or criminal finding, and offer alleged abusers the right to due process. The federal government must ensure that provincial/territorial registers have access to criminal records related to child abuse; and That, if requested by provincial/territorial governments, the appropriate federal departments should provide access to social insurance numbers or fingerprints to permit screening for a history of child abuse by persons seeking or occupying a position of responsibility for children. There must be appropriate measures undertaken to protect privacy.

                    Recommendation 53

    That provincial/ territorial officials consult with one another with a view to establishing common concepts and definitions for identifying and registering child abusers and to discuss interjurisdictional problems, particularly those related to screening.

Chapter 6 - The Challenges of Healing and Treatment
 

                    Recommendation 55

    That the current Federal/ Provincial/ Territorial Committee on Mental Health continue its active efforts to improve mental health services to children, especially those who are victims of child sexual abuse; and further

    That provincial/territorial governments develop methods of providing psychiatric consultation services in community-based settings, as well as utilizing the services of psychologists, social workers, and community health nurses.

                    Recommendation 56

    That provincial/ territorial governments address the gaps in the delivery of treatment services, such as the need for crisis case management teams, comprehensive diagnostic assessment services, and the adequate support of community-based agencies.

                    Recommendation 57

    That the federal government, in partnership with provincial/ territorial governments, study the particular problems in providing treatment services to rural and remote communities and develop innovative agreements to better utilize treatment specialists, self-help groups, indigenous helpers and community volunteers. These initiatives should be cost-sharable (see Recommendation 8).

                    Recommendation 58

    That provincial/territorial policies and therapists ensure that treatment plans for child victims are shared with non-offending parents and other caregivers, and that these individuals are appropriately involved in the healing process.

                    Recommendation 59

    That the federal government fund research and evaluation studies into the effectiveness of different treatment intervention strategies for victims, families and offenders.

                    Recommendation 60

    That the Expert Advisory Committee on Healing and Treatment^l, in conjunction with experts in the field and appropriate government jurisdictions, develop a long-range plan for effective sex offender treatment strategies. This may involve supporting work that has already been completed, such as the Solicitor General working group, and/or initiating further consultation and research activity. The implementation of proposed changes will require consultation and co-operation of all the government jurisdictions involved.

Chapter 7- Information Needed: Education, Training and Research

                    Recommendation 61

    That the Canadian Association of Chiefs of Police and the RCMP review police policy and practice related to the investigation of child sexual abuse and the necessary levels of expertise required by police officers in this area;

    That police departments support policies to ensure there are front-line specialists available for child abuse cases; and

    That, through the Canadian Police College, senior police officials be required to take an orientation program dealing with the area of child abuse. ¹ See Recommendation 7.                     Recommendation 62

    That Canadian law schools ensure that all students acquire a basic understanding of the issues of domestic violence and child sexual abuse, perhaps in the context of their family law or criminal law courses. Interested students should have the opportunity to take advanced-level courses dealing with child sexual abuse and to acquire clinical experience in the area. Continuing legal education programs should regularly be offered on the subject of civil and criminal aspects of child sexual abuse.

                    Recommendation 63

    That provincial ministries of the Attorneys General offer week-long training programs for Crown Attorneys, child protection investigators and court-based counsellors on adequate preparation for sensitivity of child victims and on such issues as the use of videotapes.
 

                    Recommendation 66

    Professional schools and colleges should ensure that those who will work with children are competent to respond to cases of child sexual abuse disclosure, using a humane child-centred approach consistent with established community protocols and the laws of the land.

                    Recommendation 67

    That federal government departments ensure innovative federally funded projects in child abuse have a research or evaluation component. Information in the form of research summaries should be systematically published and distributed to the community of practitioners and researchers in child sexual abuse.

                    Recommendation 68

    That Health and Welfare Canada continue to involve national associations, scholars, practitioners, professional groups, government agencies and research councils in dialogue about child sexual abuse and that, with the assistance of provincial/territorial governments, it encourage similar discussion at provincial/ territorial levels for the purposes of clarifying information and research needs. Other relevant federal departments should also be involved. In addition, such discussions should include representatives of the relevant national level research councils such as the social sciences and humanities research council and the medical research council.

                    Recommendation 69

    That the proposed Children's Bureau of Health and Welfare Canada, in conjunction with other federal departments and provincial/ territorial departments, establish a federal-provincial/ territorial committee to establish common definitions related to child sexual abuse so that a national statistical data base can be established.

Chapter 8 Aboriginal Communities

                    Recommendation 70

    That the federal government appoint an Aboriginal Expert Advisory Committee on child abuse with a mandate to develop a five-year action plan^l to address child abuse and related issues in aboriginal constituencies. The Expert Advisory Committee should be made up of aboriginal representatives, including band councils, aboriginal associations, aboriginal workers, child abuse experts and representatives from appropriate government jurisdictions. The Expert Advisory Committee should hold national and/or regional consultations with representatives of aboriginal communities to ensure that the emerging plan reflects the realities and concerns of local communities.

Chapter 9 - Emerging Concerns: Special Groups

                    Recommendation 71

    That the Children's Bureau of Health and Welfare Canada, in conjunction with other federal departments, the provinces and territories and appropriate non-governmental associations and professional groups, establish a special task force or federal-provincial/territorial committee to examine the issues of child abuse for children in institutional settings, very young children, disabled and disturbed children and new Canadians. The task force should be asked to report within 18 months with comprehensive strategies to reduce the risk of child abuse for these children. ¹ Government and native child welfare agencies have already initiated programs to address aboriginal child sexual abuse. Where solutions are evident, communities will be undertaking immediate action. Along with these immediate steps, however, it is anticipated that a longer-range strategy will be needed; hence the reference to five years.                     Recommendation 72

    That the Children's Bureau of Health and Welfare Canada in conjunction with the provinces and territories and appropriate non-governmental associations and professional groups establish a special task force or federal, provincial/territorial committee to examine the issue of child abuse in rural and remote communities. The task force should be asked to report within 18 months with comprehensive strategies to deal with child abuse in rural and remote settings.

Chapter 10 -  Stages of Implementation

                    Recommendation 73

    Within six months of the release of this report, the federal government should issue a statement indicating what action it intends to take in response to the report's recommendations.

                    Recommendation 74

    That the federal government publish an annual report that describes its progress in combating child abuse.

Bibliography

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Huartson, K. (1988). National Victims Resource Centre 1987 Operational Statistics. Unpublished report, Dept. of Justice, Canada.

Hurst, G. (No date). The Occult: A New Police Problem. Unpublished fact sheet. Odessa, TX.: Ector County Sheriff's Office.

I Can't Take it Anymore. (No date). [Pamphlet]. St. John's, Nfld.: Transition House.

Independent Order of Foresters. (No date). Independent Order of Foresters Against Child Abuse. [Materials in folder.] Don Mills, Ont.: Florence Hallum Prevention of Child Abuse Fund.

Indian and Inuit Nurses of Canada. (1987). Consultation on Child Sexual Abuse, February 11-13, 1987. Ottawa, Ont.: Family Violence Prevention Division, Health and Welfare Canada. (FVPD Project #70).

Indian Association of Alberta. (1987). Child Welfare Needs: Assessment and Recommendations. Calgary, Alta.: Indian Association of Alberta.

Institute for the Prevention of Child Abuse. (1988, Jan.). Newsbrief, 1(1). [Highlighting: Bill C-15 and child sexual abuse.]

Institute for the Prevention of Child Abuse. (1988). A National Exchange on Health and Social Issues in Education. Toronto, Ont.: Institute for the Prevention of Child Abuse.

Institute for the Prevention of Child Abuse. (1989, Mar.). A Call to Action: An Agenda for Boards. Toronto, Ont.: Institute for the Prevention of Child Abuse.

Inuit Women's Association. (1987). Report on "Child Sexual Abuse in the North ", Consultation Workshop, April 6-8, 1987, Spence Bay, N.W.T. Unpublished report, Family Violence Prevention Division, National Health and Welfare, Project #211.

Joint Study of Security on the Rapid Transit System Relative to Sexual Assaults. (1989, Apr.). Toronto, Ont.: Toronto Transit Commission/Metrac/Metropolitan Toronto Police Force.

Junior League of Winnipeg. (1987, Apr.). Child Abuse Forum on Treatment in Winnipeg. Winnipeg, Man.: Junior League of Winnipeg.

Justice Institute of British Columbia Annual Report, 1978-1979. (1979). Vancouver, B.C.: Justice Institute of British Columbia.

Justice Institute of British Columbia. (1987). Sexual Abuse Training for Practitioners, Oct. 16-Dec. 5,1987. [Conference pamplet]. Vancouver, B.C.: Justice Institute of British Columbia Extension Programs.

Kagy, L. (1986). "Ritualized abuse of children." ReCap: from the National Child Assault Prevention Project, p. 1-3.

Kelly, Greg. (1988, Oct.). N. Ireland Patterns of Care The First Twelve Months. Belfast, N. Ireland: Queen's University.

Kendall-Tackett, K. A. and Simon, A. F. (1988). "Molestation and the Onset of Puberty: Data From 365 Adults Molested as Children." Child Abuse and Neglect, 12, p. 73-82.

Kids Who Run: A Forum on Repetitive Runaways Program, March 3 and 4, 1988. [Conference outline.] Toronto, Ont.: Ministry of Community and Social Services; Ontario Association of Children's Aid Societies.

King, Alan J. C. (1988). Canada Youth & AIDS Study. Kingston, Ont.: Queen's University.

Kinnon, D. (1988, Mar.). Hospital Response Protocols for Child Sexual Abuse and Sexually Transmitted Diseases in Children. Unpublished report for the Expert Interdisciplinary Advisory Committee on Sexually Transmitted Diseases in Children and Youth, Laboratory Centre for Disease Control, Health and Welfare Canada. Ottawa, Ont.: Canadian Hospital Association.

Kinnon, Dianne. (1988, Dec.). The Other Side of the Mountain: Working Together on Domestic Violence Issues: Report 1: Summary of Findings and Conclusions. Ottawa, Ont.: Interdisciplinary Project on Domestic Violence.

Kissner, Robert F. (1989, Mar.). Trauma in Our Midst: Executive Summary of a Study of SARA "Sexual Assault Recovery Anonymous" Society, Surrey, British Columbia. Burnaby, B.C.: Robert F. Kissner and Associates.

Kissner, Robert F. (1989). Trauma in Our Midst: A Study of SARA "Sexual Assault Recovery Anonymous" Society, Surrey, British Columbia. Burnaby, B.C.: Robert F. Kissner and Associates.

Kufeldt, Kathleen. (1988). Substitute Care: A Vehicle for Development or Discontinuity for Abused and Neglected Children? Unpublished paper.

Kufeldt, K., Armstrong, J. and Dorosh, M. (No date). In Care, In Contact? Unpublished paper.

Lamoureux, J.-P. (1988, mar.). La politique familiale au Québec: conférence de M. Jean-Pierre Lamoureux à l'occasion du Séminaire national sur la famille organisé par le gouvernement de la République du Cameroun à Yaoundé. Québec, Qué.: Gouvernment du Québec, Secrétariat à la famille.

Laurin, C. (1984, Oct.). A Working Paper on Family Policy: For Québec Families. [Green Paper]. Québec, Qué.: Standing Committee on Social Development.

Leschied, Alan W. (1989). Evaluating Conflicts Between Intention and Outcome Within Changing Canadian Juvenile Justice Policy: Just Listen to What the Data Says! London, Ont.: Family Court Clinic.

Letouze, Daniel. (1987-88). Health Professional Training Programs for the Identification, Prevention and Treatment of Child Sexual Abuse, A Literature Review. Ottawa, Ont.: Canadian Hospital Association.

Lincoln County Board of Education. (1985). Personal Safety: We Care. [Pamphlet series]. St, Catharines, Ont.: Lincoln County Board of Education.

Lincoln County Board of Education. (1986, Sept.). Personal Safety: We Care: Pilot Study of a Curriculum Designed to Increase Awareness of and Prevent Child Abuse, Assault and Family Violence. Unpublished draft report, produced in association with Ontario Institute for Studies in Education, sponsored by Ontario Ministry of Community and Social Services Child Abuse Prevention Program.

Lodh, F. (1987, Mar.). Explaining Fertility Decline in the West (with special reference to Canada): A Critique of Research Results from the Social Sciences. Vanier, Ont.: Vanier Institute of the Family.

Longstaffe, S. E., McRae, K. N., and Ferguson, C. A. (1986, Mar.-Apr.). "Child Sexual Abuse in Manitoba". Contemporary Pediatrics, P. 19-28.

Longstaffe, S. (1987). A New Justice for Indian Children: Final Report of the Child Advocacy Project. Winnipeg, Man.: Children's Hospital, Child Protection Centre.

Lowman, J., Jackson, M. A., Palys, T. S. and Gavigan, S. (eds.). (1986). Regulating Sex: An Anthology of Commentaries on the Findings and Recommendations of the Badgley and Fraser Reports. Burnaby, B.C.: Simon Fraser University School of Criminology.

Manitoba Adolescent Treatment Centre. Manitoba Adolescent Treatment Centre. [Program information in folder]. Winnipeg, Man.: Manitoba Adolescent Treatment Centre.

Manitoba Association of Registered Nurses. (1988, Jan.). Child Abuse: Nurses' Protocol. Winnipeg, Man.: Manitoba Community Services. Produced in association with the Manitoba Association of Licensed Practical Nurses and Registered Psychiatric Nurses' Association of Manitoba.

Manitoba. Indian Child Welfare Subcommittee. (1985, Mar.). Report of the Indian Child Welfare Subcommittee to the Tripartite Committee. Winnipeg, Man.: Indian Child Welfare Subcommittee.

Manitoba. Provincial Advisory Committee on Child Abuse. (1985, Sept.). Response to the Report on Sexual Offences Against Children and Youth. Winnipeg, Man.: Provincial Advisory Committee on Child Abuse.

Manitoba Community Services. (1987, Mar.). Annual Report, 1986-87. Winnipeg, Man.: Manitoba Community Services.

Manitoba Community Services. (1988, Jan.). Child Abuse: General Protocol. Winnipeg, Man.: Manitoba Community Services.

Manitoba Community Services. (No date). A Guide to the Child and Family Services Act: A Comparison with the Child Welfare Act. Winnipeg, Man.: Manitoba Community Services.

Manitoba Community Services. (No date). Child and Family Services in Manitoba. Winnipeg, Man.: Manitoba Community Services.

Manitoba Teachers' Society. (1988, Jan.). Child Abuse: A Handbook for Manitoba Teachers: Teachers' Protocol. Winnipeg, Man.: Manitoba Community Services.

Marois, M. R., Messier, C. and Perreault, L. A. (1984). Incest: Three or More's a Crowd: Learning to Help Them. Québec, Qué.: Ministry of Justice.

Marshall, Patricia. (1988, Sept. 1). "Sexual Assault, The Charter and Sentencing Reform ". Criminal Reports, Vol. 63, Part 3, ISSN 0383-9494 63 C.R. (3d) p. 216-235.

Marshall, W. L. and Barbaree, H. E. (In press). The long-term evaluation of a behavioural treatment program for child molesters. Behaviour Research and Therapy.

Marshall, W. L. and Barbaree, H. E. (No date). A Manual for the Treatment of Child Molesters. Unpublished manuscript. Kingston, Ont.: Queen's University Dept. of Psychology; Kingston Sexual Behaviour Clinic.

Martens, Tony. (1988). Characteristics and Dynamics of Incest and Child Sexual Abuse. Edmonton, Alta.: Nechi Institute.

Marymound, Inc. (No date). The Marymound Model: A Sequential Approach to the Treatment of Male Adolescent Sexual Offenders and Sexual Abuse Victims: A Proposal for Demonstration Project Funding. Unpublished report. Winnipeg, Man.: Marymound, Inc.

Marymound, Inc. (No date). The Marymound Model: A Sequential Approach to the Treatment of Male Adolescent Sexual Offenders and Sexual Abuse Victims: Overview of Service and Evaluation Components. Unpublished report. Winnipeg, Man.: Marymound, Inc.

Mathews, F. (1987, Sept.). National Consultation on Adolescent Prostitution: Discussion Paper. Ottawa, Ont.: Canadian Child Welfare Association.

Mathews, F. (1987). Adolescent Sex Offenders: A Needs Study. Toronto, Ont.: Central Toronto Youth Services.

Mathews, F. (1987). Familiar Strangers: A Study of Adolescent Prostitution. Toronto, Ont.: Central Toronto Youth Services.

Mathews, Frederick, Ph.D., C.Psych. (1989, Jan.). Towards a National Strategy for Treatment of Child Sexual Abuse Victims, Their Families and Offenders. Workshop discussion paper, Halifax, December 5-7,1988.

Mawhiney, Anne Marie. (No date). Policy Development as a Hegemonic Strategy: Example of the Child andFamily Services Act in Ontario. Unpublished paper.

McGuire, T. L. and McCall, D. S. (1987, Mar.). Child Abuse: A Manual for Schools. Vancouver, B.C.: EduServ, Inc.

McHardy, J. (1987, Sept.). Child Sexual Abuse: A Literature Review. Unpublished research paper. Victoria, B.C.: Research, Evaluation and Statistics Branch, Ministry of Social Services and Housing.

McKenzie, Brad. (No date). Decentralizing Child Welfare Services in an Urban Setting: Community Empowerment, Service Impact and the Morale of Staff. Unpublished paper.

McNeece, C. Aaron. (No date). The Use of Criminal Sanctions in Child Abuse and Neglect. Unpublished paper.

McRae, K. N., Cameron, A., Ferguson, C. A., Loadman, E., Longstaffe, S. and Snyder, R. (1984). "The Forensic Pediatrician as Child Advocate." Developmental and Behavioral Pediatrics, 5(5), p. 259-262.

McRae, K. N., Hurd, J., Ferguson, C. A., Longstaffe, S., and Gutkin, R. (1984). "The Winnipeg Children's Hospital Child Protection Centre: A Provincial Medical Initiative." Canadian Medical Association Journal, 130, p. 981-984.

Mediation and Divorce: A Bibliography/ Médiation et divorce: une bibliographie.  (No date). Ottawa, Ont.: Dept. of Supply and Services.

Melnechuk, Christina. (1988, Mar.). The Integrated Treatment Model (ITM) for Sexually Abused Children and Their Mothers. Final Report. Vancouver, B.C.: Vancouver Incest and Sexual Abuse Centre (VISAC) of Family Services of Greater Vancouver. Project funded by National Welfare Grants, Health and Welfare Canada, under Project 4559-1-63.

Melnechuk, Christina. (1989, Mar.). Synopsis of the Final Report of the Integrated Treatment Model (ITM) Project for Sexually Abused Children and Their Mothers. Summary of the Final Report. Vancouver, B.C.: Vancouver Incest and Sexual Abuse Centre (VISAC) of Family Services of Greater Vancouver. Projected funded by National Welfare Grants, Health and Welfare Canada, under Project 4559-1-63.

Mennonite Central Committee Canada. (1989). Broken Boundaries: Resources for Pastoring People: Child Sexual Abuse. Winnipeg, Manitoba: MCC Domestic Violence Task Force.

Mennonite Central Committee Canada. (1989). The Purple Packet: Domestic Violence Resources for Pastoring Persons: Wife Abuse. Kitchener, Ont.: MCC Domestic Violence Task Force.

Messier, C. and De Champlain, J. (1984). The Protection of Sexually Abused Children: What is the Situation in Quebec?: Synopsis. Québec, Qué.: Comité de la protection de la jeunesse.

Messier, C. (1987). Treatment of Father-Daughter Incest Cases: A Difficult Task: Synopsis. Québec, Qué.: Comité de la protection de la jeunesse.

Messmer, Heinz. (No date). Tackling the Conflict: A Framework Analysis of Dispute Settlement Beyond the Court. Unpublished paper.

Metropolitan Toronto Police Force Task Force on Juvenile Prostitution. (1987, May). Unpublished report. Toronto, Ont.: Metropolitan Toronto Police Force.

Metropolitan Toronto Special Committee on Child Abuse. (1986, Mar. 9).1986 Annual Report. Toronto, Ont.: Metropolitan Toronto Special Committee on Child Abuse.

Metropolitan Toronto Special Committee on Child Abuse. (1986). Child Sexual Abuse Protocol: Guidelines and Procedures for a Coordinated Response to Child Sexual Abuse in Metropolitan Toronto.(2nd ed.). Toronto, Ont.: Metropolitan Toronto Special Committee on Child Abuse.

Mian, M., Wehrspan, W., Klajner- Diamond, H., Lebaron, D., and Winder, C. (1986). "Review of 125 children 6 years of age and under who were sexually abused." Child Abuse and Neglect, 10, p. 223-229.

Ministère de la Santé et des Services sociaux. (1987, mar.) Centre de services de réadaptation pour jeunes en difficulté d'adaptation. Proposition au Ministère de la Santé et des Services sociaux. Québec, Qué.

Ministère du Solliciteur général du Québec. Au Coeur de votre sécurité. Québec, Qué.: Ministère du Solliciteur général.

Mohr, J. W. (1986, June). Violence in Contemporary Society: Causes of Violence: A Socio-Legal Perspective. Paper presented at the John Howard Society of Canada Conference, June 8-11,1986, Ottawa, Canada. Vanier, Ont.: Vanier Institute of the Family.

Moore, K. G. (1987, Dec. 4). Brief on Child Sexual Abuse to Rix Rogers, Dept. of National Health and Welfare. Unpublished report. Charlottetown, P.E.I.: Association of Social Workers.

Morrison, J. L. (1988). "Perpetrator Suicide Following Incest Reporting: Two Case Studies." Child Abuse and Neglect, 12, p. 115-118.

Morrison, T. R. (1987, Sept.). The Life Context of the Modern Family. Paper presented at the Vanier Institute of the Family Conference "Every Family Is a Working Family", Edmonton, Alberta, Sept. 18, 1987.

Murray, R. M. (1988, Aug.). Treatment Programs for Child Sexual Offenders in Canada: A Descriptive Listing. Unpublished draft report. Ottawa, Ont.: National Clearinghouse on Family Violence, Dept. of National Health and Welfare.

National Associations Active in Criminal justice. (1987, May). A Reflective Analysis on Reconciliation as it Relates to Criminal Justice: A Search for Community-Building Justice. Unpublished report prepared for "New Directions in Criminal Justice" Workshop, May 6 and 7,1987, Ottawa, Ont.

National Clearinghouse on Family Violence Operational Statistics, April 1, 1988 June 30, 1988. Unpublished report, Family Violence Prevention Division, Health and Welfare Canada.

National Film Board of Canada /Office national du film du Canada. (1987). Annual report/Rapport annual, 1986-1987. Montréal, Qué.: Communications Division.

National Health and Welfare Canada; National Film Board of Canada. (1989). The Family Violence Audio-Visual Catalogue: A List of Audio-Visuals Available from Various Sources in North America. Ottawa, Ont.

National Legal Resource Center for Child Advocacy and Protection. (1982). Recommendations for Improving Legal Intervention in Intrafamily Child Sexual Abuse Cases. Washington, D.C.: American Bar Association, National Legal Resource Center for Child Advocacy and Protection.

Neice, D. (1987, Sept.-Oct.). "Reflections on the Nature of Youth." Perception: A Canadian Magazine of Social Comment, 11 (1), P. 22-24.

New Brunswick. Dept. of Justice. (1988, Jan.). Proposal for Child Sexual Abuse Specialist Team. Fredericton, N.B.: Dept. of Justice.

New Brunswick Association of Social Workers. (1988, Jan.). Five-Part Series on Child Sexual Abuse. Fredericton, N.B.: New Brunswick Association of Social Workers.

New Brunswick Child Welfare Association. Community Response to a Community Problem: A Conference on the Prevention of Child Abuse, April 1987, Fredericton, New Brunswick. Conference report.

Newfoundland. Working Group on Child Sexual Abuse. (1986). Blueprint for Action: The Report of the Working Group on Child Sexual Abuse. St. John's, Nfld.: Community Services Council.

Nisha Children's Society. (No date). Nisha Children's Society Philosophy. Unpublished report. Vancouver, B.C.: Nisha Children's Society.

No Longer Alone: Self-Help for Victims and Perpetrators of Family Violence. (1987). Vis-à-vis: A National Newsletter on Family Violence, 5(3),1.

Northern Lights Treatment Centre. (No date). Philosophy Statement. Unpublished report. Inuvik, N.W.T.: Northern Lights Treatment Centre.

Norway. Royal Norwegian Ministry of Foreign Affairs. (1987, Dec.). Commissioner for Children in Norway. Oslo, Norway: Royal Norwegian Ministry of Foreign Affairs.

Nova Scotia. Dept. of Social Services. (1986). Social Services for Nova Scotians. Halifax, N.S.: Dept. of Social Services.

Nova Scotia. Task Force on Family and Children's Services. (1987, Feb.). Report of the Task Force on Family and Children's Services. Halifax, N.S.: Dept. of Social Services.

Nova Scotia Conference on the Family: Proceedings. (1987, June). Nova Scotia: Dept. of Social Services.

Oates, M. (No date). Reserve Stress and Coping Skills. Unpublished workshop paper, British Columbia Northwest Zone, Medical Services Branch, Health and Welfare Canada.

Oates, M. L. B. (No date). Native Parenting Workshop. Unpublished conference materials, National Health and Welfare, Medical Services, Northwest Zone.

Obomsawin, M.-L. and Obomsawin, R. (1988). A Modem Tragedy: Family Violence in Canada's NativeCommunities/Une tragédie de l'âge moderne: la violence familiale dans les collectivités autochtones du Canada. Vis-à-vis: A National Newsletter on Family ViolencelVis-à-vis: Bulletin national sur la violence familiale, 50 (4), p. 1-2.

Ontario. Bill 198: An Act to Amend the Limitations Act (1988).

Ontario. Ministry of Community and Social Services. (1981, Feb.). Standards and Guidelines for the Management of Child Abuse Cases Under the Child Welfare Act, 1978, by the Children's Aid Societies. Toronto, Ont.: Ministry of Community and Social Services, Children's Services Division.

Ontario. Ministry of Community and Social Services. (1985). Highlights of the Child and Family Services Act. Toronto, Ont.: Ministry of Community and Social Services.

Ontario. Ministry of Community and Social Services. (1986, Sept.). Proposal for the Establishment of a Child, Youth and Family Policy Research Institute Unpublished report. Toronto, Ont.: Ad Hoc Committee on the Institute.

Ontario. Ministry of Community and Social Services. (1987, June). Corporate Plan. Toronto, Ont.: Ministry of Community and Social Services.

Ontario. Ministry of Community and Social Services. (1987, Aug.). Interim Guidelines for Reporting to the Child Abuse Register. (Rev. Ed.). Toronto, Ont.: Ministry of Community and Social Services.

Ontario. Ministry of Community and Social Services. (No date). Child Abuse: A Guide for Ontario Police. Toronto, Ont.: Ministry of Community and Social Services.

Ontario Teachers' Federation. (No date). "Family Matters: A Review of the Literature on Trends in Child-Rearing and Family Life." Breaking the Cycle: Child Abuse Prevention, Vol. I. Toronto, Ont.: Ontario Teachers' Federation.

Ontario Teachers' Federation. (No date). "Learning Parenting: A Review of the Literature on Parent Education." Breaking the Cycle: Child Abuse Prevention, Vol. II. Toronto, Ont.: Ontario Teachers' Federation.

Ottawa Board of Education. (No date). Children Learning for Living: A Prevention Program to Keep Children Socially and Emotionally Healthy. [Pamphlet]. Ottawa, Ont.: Ottawa Board of Education Student Services Dept.

Outreach Abuse Prevention. (1988). Safe and Happy Personal. Safety Kit. Oshawa, Ont.: Outreach Abuse Prevention.

Peacy, S. (No date). "Assessing the CAS Plan: A Social Worker's Perspective." The Legal Representation of Children in Child Protection and Custody/Access Proceedings. (p. C-29 C-39). Toronto, Ont.: Office of the Official Guardian, Ministry of the Attorney General.

Pecora, Peter J., Fraser, Mark W. and Haapala, David A. (1989). Intensive Home-Based Family Treatment: Client Outcomes and Issues for Program Design. Unpublished paper.

Plan of Action for Children Task Force. (1987). The Plan of Action for Children: A Task Force Report: "Investments in the Future". Chicago, IL.: Plan of Action for Children Task Force.

Power, M. (1987, Dec. 4). A Brief to the Special Advisor on Child Sexual Abuse. Unpublished report. Charlottetown, P.E.I.: Catholic Family Services Bureau.

Prince Edward Island. Advisory Council on the Status of Women. (1987, Dec. 4). Briefing notes for Rix Rogers, Special Advisor on Child Sexual Abuse to National Health and Welfare Minister, Jake Epp. Unpublished report. Charlottetown, P.E.I.: Advisory Council on the Status of Women.

Prince Edward Island. Dept. of Education. (1986). Annual Report for the Year Ending June 30, 1986. Charlottetown, P.E.I.: Dept. of Education.

Prince Edward Island. Dept. of Health and Social Services. (1986). Annual Report 1985-1986. Charlottetown, P.E.I.: Dept. of Health and Social Services.

Prince Edward Island. Dept. of justice. (1986). Annual Report, 14. Charlottetown, P.E.I.: Dept. of Justice.

Prince Edward Island Child Welfare Association. (1986, Mar.). Child Sexual Abuse Protocol: Guidelines and Procedures for a Co-ordinated Response to Child Sexual Abuse in Prince Edward Island. Charlottetown, P.E.I.: Child Welfare Association.

Prince Edward Island Child Welfare Association. (1987, Dec. 4). Observations About Child Sexual Abuse in P.E.I.: A Brief Presented to Rix Rogers, Special Advisor on Child Sexual Abuse. Unpublished report. Charlottetown, P.E.I.: Child Welfare Association.

Prince Edward Island Hospital Services Commission. (1987). Hospital Protocol: Victims of Domestic Violence. Charlottetown, P.E.I.: Hospital Services Commission.

Prince Edward Island Rape and Sexual Assault Crisis Centre. (1987, Dec. 4). Society's Child: Ending the Nightmare of Child Sexual Abuse: A Brief Presented to Rix Rogers, Special Advisor on Child Sexual Abuse. Unpublished report. Charlottetown, P.E.I.: Rape and Sexual Assault Crisis Centre.

Prince Edward Island Teachers' Federation. (1987, Dec. 4). Presentation to Mr. Rix Rogers, Special Advisor to National Health and Welfare Minister. Unpublished report. Charlottetown, P.E.I.: Teachers' Federation.

Proceedings of the Conference on Sexual Abuse of Children. (1982, Nov.). Winnipeg, Man.: Government of Manitoba.

Proceedings of the National Consultation on Adolescent Prostitution. (1987, Sept.) Ottawa, Ont.: Canadian Child Welfare Association.

Prosecuting Child Abuse: Special Issue of Prosecutors Perspective, 2(l).

Psychological Association of Manitoba and Manitoba Psychological Society. (1988). Brief to the Committee of the Legislative Assembly of Manitoba Respecting Bill 59: An Act to Amend the Mental Health Act. Unpublished report.

Québec. Comité de la protection de la jeunesse. (1984). Sexuality: The Experience and Opinions of Young People. Québec, Qué Ministère de la Justice.

Québec. Dept. of Justice; Dept. of the Solicitor General. (1986). Action Policy on Conjugal Violence. Québec, Qué Communications Directorate.

Québec. Government of Québec. (1985). Québec's System of Health and Social Services. Québec, Qué: Government of Québec.

Québec. Government of Québec. (1987, Dec.). Statement Of Orientations and Administration Structure of the Québec Government's Family Policy: Presented to the National Assembly of Québec in December 1987. Québec, Qué Government of Québec.

Québec. Ministère de la Santé et des Services sociaux. (1986). Rapport annuel, 1985-1986. Québec, Qué Gouvernement du Québec.

Québec. Ministère de la Santé et des Services sociaux. Un sens unique a l'action: le nouveau plan d'organisation du Ministère de la Santé et des Services sociaux. Québec, Qué.: Gouvernement du Québec.

Québec. Ministère du Solliciteur général. Rapport annuel, 1986-1987. Quebec, Qué.: Gouvernement du Québec.

Québec. Services correctionnels du Québec. (1988). Mission valeurs et orientations. Québec, Qué Ministère du Solliciteur général.

Québec. Youth Protection Act, R.S.Q., Chapter P-34.1, Updated. (1985, Sept. 1). Excerpt from the Revised Statutes of Québec. Québec, Qué.: Government of Québec.

Québec Child Abuse Programs Committee. (1984). Kids are Worth It: Integrating Volunteer Efforts With Health Agencies Personnel: Montréal, Québec addendum. Montréal, Qué.: Québec Federation Home and School Association.

Quiviger, C. (1987, sept.-oct.). "Une pauvreté à visages multiples." Perception: un magazine canadien de critique sociale, 11 (1), p. 16-19.

Raychaba, B. (1988). To Be on Your Own With No Direction from Home: A Report on the Special Needs of Youth Leaving the Care of the Child Welfare System. Ottawa, Ont.: National Youth in Care Network.

Reed, Dave. (1988). Families in Crisis: Sexual Abuse: A Citizen's Guide to Sexual Abuse Issues. Toronto, Ont.: The Children's Unit, Anglican Church of Canada.

The Regional Municipality of Hamilton-Wentworth. Child and Adolescent Services. (1988). Breaking the Cycle: A 24 Week Group Program for Adolescent Sexual Offenders. Hamilton, Ont.: Regional Municipality of Hamilton- Wentworth.

Reid, G., Hill, E., Sigurdson, E., Swift, K. and Onysko, R. (1987, Oct.). External Review Into Matters Relating to the Operation of Northwest Child and Family Services in Winnipeg. Unpublished report for Manitoba Community Services.

Report on Physically and Sexually Abused Children in Manitoba, 1985. (1986, May). Unpublished report. Winnipeg, Man.: Unidentified source.

Rivera, M. (1987). "Multiple Personality: An Outcome of Child Abuse." Canadian Women's Studies/Les cahiers de la femme, 8(4), p. 18-22.

Rochon, M. (1986, Apr.). Report of the Committee for Consultation on Family Policy. Part One: Collective Support Demanded for Québec Families. Quebec, Qué Committee for Consultation on Family Policy.

Rochon, M. (1986, July). Report of the Committee for Consultation on Family Policy. Part Two: Collective Support Recommended for Québec Parents. Québec, Qué.: Committee for Consultation on Family Policy.

Rodway, Margaret. (No date). Intrafamilial Child Sexual Abuse: State Intervention in Canada. Unpublished paper.

Roeters, K. (1987). On the Other Side: Final Report from the National juvenile Prostitution Survey. Ottawa, Ont.: National Youth in Care Network.

Rogers, Rix G. (1988, Oct.). Discussion Paper An Overview of Issues and Concerns Related to the Sexual Abuse of Children in Canada. Ottawa, Ont.: Health and Welfare Canada.

Ross, J., Cowan, P., Harvey, P., Janzen, D. and Robertson, H. (1987, Apr.). Teachers, Children's Rights and Education: A Framework for Analysis. Unpublished discussion paper, Ad Hoc Committee on Children's Rights.

Ross, J. (No date). "Faulty Assumptions and Ineffective Techniques in Sex Offender Treatment." New England Adolescent Perpetrator Network Newsletter.

Rothman, E., Schiff, M. and Sumegi, Z. (1987, Sept.). Canadian Public Health Association Report on AIDS/STD Education for Youth. Ottawa, Ont.: Canadian Public Health Association. (Family Violence Prevention Division, Health and Welfare, Project #75).

Rotter, R. (1987, Jan. 19). Report of the Concept of a National Child Abuse Telephone Line. Submitted to the National/Research Committee on the Canadian Children's Foundation.

Rowe, Jane; Hundleby, Marion and Garnett, Louise. (No date). Child Care Placement Outcomes. Unpublished paper.

Rundle, D. (1987, Dec. 10). Report Presented to Rix Rogers, Special Advisor to the Minister of National Health and Welfare, on Child Sexual Abuse. Unpublished report, Southeast Child and Family Services and Southeast Resource Development Council, (Manitoba).

Runyon, Desmond K. (1988). "Impact of Legal Intervention on Sexually Abused Children." Journal of Pediatrics, Vol. 113, No. 4, p. 647-653.

Russell, D. H. (1986). The Secret Trauma. New York: Basic Books.

Sagkeeng Child and Family Services. (1987, Dec. 8). Proposal for Funding of an Abuse Coordinator Position at Sagkeeng Child and Family Services. Unpublished proposal. Pine Falls, Man.: Sagkeeng Child and Family Services.

Saskatchewan. Dept. of Child and Family Services. (1988). Bill No. 94 of 1988: An Act Respecting the Protection of Children and the Provision of Support Services to Families. Regina, Sask.: Dept. of Child and Family Services.

Saskatchewan Council on Children and Youth. Beyond Badgley: Sexual Offenses Against Children: Conference Report. (1987, May 7-8). Pilot Butte, Sask.: Saskatchewan Council on Children and Youth.

Saunders, E. J. (1988). "A Comparative Study of Attitudes Toward Child Sexual Abuse Among Social Work and judicial System Professionals." Child Abuse and Neglect, 12, p. 83-90.

Scarborough Agencies Sexual Abuse Treatment Program. (No date). An Introduction: The Co-operative Caring Network. [Pamphlet]. Scarborough, Ont.: Scarborough Agencies Sexual Abuse Treatment Program.

Scott, D. J. (1987, Oct.). Interim Report on Project Activities: The Working Group on Child Sexual Abuse. St. John's, Nfld.: Community Services Council.

Sexual Assault Centre of Edmonton. (No date). Child Sexual Assault: A Pamphlet for Parents. Edmonton, Alta.: Sexual Assault Centre of Edmonton.

Sexual Assault Centre of Edmonton. (No date). If You Are Sexually Assaulted. [Fact sheet]. Edmonton, Alta.: Sexual Assault Centre of Edmonton.

Sexual Assault Centre of Edmonton. (No date). Incest. [Pamphlet]. Edmonton, Alta.: Sexual Assault Centre of Edmonton.

Sexual Assault Centre of Edmonton. (No date). Incest Survivors: Silent Victims. [Fact sheet]. Edmonton, Alta.: Sexual Assault Centre of Edmonton.

Sexual Assault Centre of Edmonton. (No date). Myths and Facts About Incest. [Fact sheet]. Edmonton, Alta.: Sexual Assault Centre of Edmonton.

Sexual Assault Centre of Edmonton. (No date). To Mothers of Incest Victims. [Fact sheet]. Edmonton, Alta.: Sexual Assault Centre of Edmonton.

Sexual Offenses and Disabled Victims: Research and Practical Implications. (1988). Vis-a-vis: A National Newsletter on Family Violence, 6(4), 1.

Sigurdson, E., Reid, G., Onysko, R., Rodgers, J. and Prefontaine, J. (1987, Mar.). External Review Into Matters Relating to the System of Dealing With Child Abuse in Winnipeg: Final Report. Unpublished report presented to Minister of Community Services, Government of Manitoba.

Sigurdson, E., Strang, M. and Doig, T. (1987, Oct.). "What Do Children Know About Preventing Sexual Assault?: How Can Their Awareness be Increased?" Canadian Journal of Psychiatry, 32, p. 551-557.

Silvester, L. and Tomori, B. (1987). A Handbook on Reporting Child Abuse. Waterloo, Ont.: Waterloo County Board of Education.

Siu, W. (ed.). (1987). Synopsis of the Final Report: Foster Care Training: A Comprehensive Approach. Vancouver, B.C.: Federation of Foster Parents Associations.

Smith, P. (1994). Breaking Silence: Descriptive Report of a Follow-Up Study of Abused Women Using a Shelter. [Summary]. Regina, Sask.: Regina Transition Women's Society.

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