On the issue of the Pembroke Diocese, reporting to police and the Child and Family Services Act “Duty to Report.
This gets rather convoluted. I will try my best to explain.
Backgrounder
(1) Provincial legislation
Perhaps the best place to start is with the Ontario Child and Family Services Act (OCFSA). This is provincial legislation which, in part, governs the duty to report. I believe every province and territory in Canada has similar legislation.
I will quote sections of the act throughout this article, Those who wish to see it in it’s entirety can access the online version via this external link: Scroll down to section 72 headed “Duty to Report.”
A simpler read with some explanatory notes can be found in this brochure published by Service Ontario.
And this from the Ontario Ministry of Child and Youth Services
And, important to know, according to OCFSA, a “’child’” means a person under the age of eighteen years; (‘enfant’)” However, according to the Ontario Ministry of Children and Youth Services the duty to report applies to a child who is under 16. The Ontario Services brochure also states that the duty to report applies to a child under 16.
I don’t see anywhere in the OCFSA itself that the duty to report applies to a child who is under 16. If I have missed it could someone point it out? It seems a strange omission so if I have overlooked it I really would appreciate if someone could point it out to me.
Anyway, as you will see, in the Province of Ontario there is no legal duty to report to police. I believe the same may hold true for other provinces and territories. Check online for the legislation which covers the duty to report in your province or territory.
There is no duty to report to police. There is, however, a duty to report to Children’s Aid or it’s equivalent.
The “Duty to Report” as outlined in the OCFSA, demands in part that:
Despite the provisions of any other Act, if a person who performs professional or official duties with respect to children, has reasonable grounds to suspect one of the following, the person shall forthwith report the suspicion and the information on which it is based to a society [Children’s Aid]:
. . .
3. The child has been sexually molested or sexually exploited, by the person having charge of the child or by another person where the person having charge of the child knows or should know of the possibility of sexual molestation or sexual exploitation and fails to protect the child.
4. There is a risk that the child is likely to be sexually molested or sexually exploited as described in paragraph 3.
. . .
Those who do not report are, as stated below, guilty of an offence
Offence
(4) A person referred to in subsection (5) is guilty of an offence if,
(a) he or she contravenes subsection (1) or (2) by not reporting a suspicion; and
(b) the information on which it was based was obtained in the course of his or her professional or official duties. 1999, c. 2, s. 22 (2).
This duty to report applies also to the following persons:
(5) Subsection (4) applies to every person who performs professional or official duties with respect to children including,
(a) a health care professional, including a physician, nurse, dentist, pharmacist and psychologist;
(b) a teacher, person appointed to a position designated by a board of education as requiring an early childhood educator, school principal, social worker, family counsellor, operator or employee of a day nursery and youth and recreation worker;
(b.1) a religious official, including a priest, a rabbi and a member of the clergy;
(b.2) a mediator and an arbitrator;
(c) a peace officer and a coroner;
(d) a solicitor; and
(e) a service provider and an employee of a service provider. 1999, c. 2, s. 22 (3); 2006, c. 1, s. 2; 2010, c. 10, s. 23.
And, note the following. Some persons who are party to a failure to report are guilty of an offence:
(6.1) A director, officer or employee of a corporation who authorizes, permits or concurs in a contravention of an offence under subsection (4) by an employee of the corporation is guilty of an offence. 1999, c. 2, s. 22 (3).
Those persons convicted of failing in their duty to report, or one who authorizes, permits or concurs in such failure, can, at the present time, face a fine of up $1,000. A rather paltry sum I’d say. The good news here is that this penalty will be replaced by one which ups the fine to “not more that $50,000″ and adds the option of imprisonment for up to two years. The penalty can include both a fine and imprisonment.
Lawyers and lawyers alone are exempt from the duty to report:
(8) Nothing in this section abrogates any privilege that may exist between a solicitor and his or her client. R.S.O. 1990, c. C.11, s. 72 (8).
That means that a lawyer has no duty to report any information regarding a molester. It matters not if he knows a child molester is serving in a parish, or teaching in a school or running a boy scout troop. Solicitor-client privilege prevails.
For those who may not know, there is no exemption in Ontario for what is heard in Confession. Roman Catholic clergy are supposed to be legally bound to report what they are told in Confession.
(2) Perry Dunlop
The essence of the duty to report in CFSA has not changed since Perry Dunlop fulfilled his duty to report the David Silmser sex abuse allegations against Father Charlie MacDonald.
I posted the act sometime in 2006. Those who wish to check for themselves can do so by comparing with the current version of the act
Many of you will recall that Perry Dunlop went to CAS when he discovered that his police force (Cornwall Police Service) was no longer investigating David Silmser’s child sex abuse allegations against Father Charles MacDonald. Perry had read David’s victim statement and felt the allegations were credible. He was aware that Father MacDonald was still in active ministry. Perry believed that children were at risk. He decided he had to fulfill his duty to report to CAS. The fact that Perry was a police officer was irrelevant: he still had a duty to report to CAS.
We all know what happened.
Perry Dunlop became the target for the ire of fellow police officers. Perry was charged with discreditable conduct and breach of confidence under the Police Services Act. Attempts to have him convicted failed. On 31 January 1995 the charges against Perry were stayed.
The Police Complaints Commission appealed.
On Appeal the Divisional Court ruled that
“Constable Perry Dunlop in September 1993 had ‘reasonable grounds to suspect that a child … may have suffered abuse.’ He had a duty, therefore, to ‘forthwith report the suspicion and information on which it is based to a society.’”
The court also ruled – and this is important – that it did not matter that David Silmser was no longer a child when he reported the allegations.
Years later at the Cornwall Public Inquiry the issue of duty to report (to CAS) raised its ugly head again and became the stuff of much dancing on the head of a pin and finger-pointing. I’m not going to get into all of that. Suffice to say that (1) Staff Sgt Garry Derochie testified that there was a consensus amongst CPS officers that the allegations against Father Charlie MacDonald did NOT fall within Section 72 of the OCFSA – and that Perry Dunlop was the only officer who thought otherwise; and, very important (2) in his final report, Justice Normand Glaude recommended that:
“The government of Ontario should amend the Child and Family Services Act to clarify that the duty to report provisions apply to cases of historical abuse where there is a risk that the alleged abuser has current access to children.”
The Ontario government which commissioned the $60M inquiry has not to date seen fit to comply with Justice Glaude’s recommendation.
(3) “Historical” sex abuse
There is no mention of historical or historic sex abuse in the OCFSA. None.
Somewhere along the line, however, a notion has gained ground that adults reporting childhood sex abuse are to be treated differently than minors reporting such abuse, and with that comes the companion notion, real or perceived, that those molesters who have eluded detection until their victims are adults are less of a threat to children and the crime is a lesser a crime..
I blogged on this several times as the Cornwall Public Inquiry lumbered its way along. Back on 01 May 2006 I blogged the testimony of Detective Wendy Leaver (Toronto Police Services Sex Crime Unit) and had this to say:
Historical sexual abuse is NOT, as it implies and most assume, sexual abuse which happened years and years ago. In some instances that is indeed the case, but in point of fact historical sexual abuse is actually sexual abuse which, according to most experts, is reported to authorities after the victim is 16-years-of-age.
So, for example, one of Jacque Leduc’s “alleged victims” was sixteen when police showed up on the doorstep of the boys’ home, and to make a long story short the boy eventually disclosed his very current sexual abuse allegations against Leduc. However, because the boy was sixteen at the time his allegations are categorized as historical.
In short, it matters not how long ago the abuse was going on or what age the child was when it started: if the victim was 16 or over when he reported it to authorities his abuse is categorized as “historical.”
As far as I’m concerned, historical child sexual abuse is as much child sexual abuse as child sexual abuse, and those who commit these “historical” crimes are every bit as much molesters. Perhaps indeed there should be additional punishment meted out for the many molester who have managed to fly under the radar and thereby avoid detection, elude justice, deceive and manipulate the naive and continue to groom and prey.
No matter. What this relatively new child sex abuse nomenclature has effectively done is draw a dividing line between those victims who report their abuse while they are minors, and those who report when they are adults. In many instances the designation “historical” has negatively impacted the manner in which the allegations are handled by various police officers, and also influenced the manner in which the molesters of “historical” abuse cases are treated – as in they are often not viewed as a threat to children.
The Pembroke Diocese Protocol for Sexual Abuse Cases Involving Minors
Now to the Pembroke Diocese Protocol for Sexual Abuse Cases Involving Minors. This is where all of this talk began, the charges against Father Howard Chabot and subsequent media coverage and blogging of those charges. Some questions and some comments…
(1) Is there a duty to report to police in the Pembroke Diocese Protocol for Sexual Abuse Cases Involving Minors?
The answer is no.
I mentioned a few days back that I had contacted the Pembroke diocese for clarification of the Protocol. I wanted to get things sorted out after reading a 30 July 2013 Ottawa Citizen article “Pembroke priest charged in alleged sex assault” in which Meghan Hurley wrote the following:
“A priest appointed by the diocese was put in charge of taking complaints of sexual assault involving children. The priest is obligated to report allegations that a child was sexually assaulted to the police.”
I was puzzled.
A diocese with a protocol demanding a duty to report to police? I hadn’t heard of one, at least not in Ontario. As you have seen, there is no legal duty to report to police so , while it would be very welcome news to find a diocese implementing such a protocol, it would be very surprising.
I called Meghan Hurley. She told me that she had talked to diocesan spokesman Bruce Pappin, and, that Mr. Pappin told her that civil authorities includes police.
I emailed Mr. Pappin. We have had a few email exchanges on the subject, with me seeking clarification of what the Protocol says and he conferring with Father Peter Proulx before responding. He also told me that he doesn’t recall telling Meghan that civil authorities included police, and that his recollection of his discussion with Meghan was that it centred more around the history of the document.
It still isn’t sorted out, but the bottom line is that the Pembroke Diocese Protocol does not demand that child sex abuse allegations be reported to police.
Yes, there is the possibility of calling police, but that, according to Mr. Pappin, is only when there is no CAS in the area .
“there are remote areas of the Diocese in both Ontario and Quebec where there is no effective representation by those child protection agencies because they are based in the larger urban centres. It is then up to the reporting individual to decide if it may be more effective to notify police first, with the understanding that they would notify the appropriate child protection agency”
I truly don’t know if this does or does not comply with teh OCFSA. It may well. In the government of Ontario guidelines, Reporting Child Abuse and Neglect: It’s Your Duty we read:“If you think the matter is urgent and you cannot reach the CAS, call your local police.”
I don’t see such a directive in the Act itself, but, the above quote comes from the Ontario Ministry of Children and Youth Services. If the left hand of government knows what the right is doing and saying, then, perhaps in those instances where the matter is deemed to be “urgent” and CAS can not be contacted, police may be contacted?
We know from elsewhere that police have an obligation to report to CAS, so if an individual is, for whatever reason unable to report to CAS and instead contacts police, the police in turn must contact CAS.
The bottom line, however, is that there is no duty to report to police in the protocol.
According to Mr. Pappin, in the Province of Quebec, the reporting is to La Protection de la Jeunesse.
(2) Is there is difference in the protocol when it comes to reporting child sex abuse allegations involving minors, and “historical” abuse allegations?
Yes, alas, there is difference
Here is an excerpt from the protocol, this one entitled “Obligation to Report.” Read carefully:
2. Obligation to Report
All citizens who have reasonable grounds to suspect that a child is, or may be, in need of protection, have a legal obligation to forthwith report this situation, along with supporting information, to Family and Children’s Services in Ontario (if the child is under the age of 16 years) or La Protection de la Jeunesse in the Province of Quebec (if the child is under 18 years of age). For the purposes of this protocol, the term “child” refers to anyone under the age of 18 years.
“The Bishop’s Delegate will ensure that the civil authorities have been notified. ..”
And then there is this excerpt, entitled “Report by an Adult”:
3. Report by an Adult
In a situation where an adult person alleges sexual abuse while he or she was a child, the Bishop’s Delegate will immediately inform the Complainant of the Complainant’s right to contact the police to commence a criminal investigation. If the Complainant prefers another procedure, the Complainant’s wishes are to be respected. . .
The latter, “Report by an Adult” is clear. When an adult reports there is no duty to report to police, nor is there any duty to report to CAS. The complainant will be informed of his/her “right” to go to police. That’s it.
What about the Obligation to Report?
Well, in reading “Report by an Adult” it is obvious that a distinction has been made between someone under 18 reporting, and an adult (someone 18 or over) reporting. And it is obvious that there is a difference in how the diocese responds to “historical” allegations, and how it responds to allegations of someone under age 18,
Look at this section of the protocol regarding the duty to report (obligation to report) again.
All citizens who have reasonable grounds to suspect that a child is, or may be, in need of protection, have a legal obligation to forthwith report this situation, along with supporting information, to Family and Children’s Services in Ontario (if the child is under the age of 16 years) or La Protection de la Jeunesse in the Province of Quebec (if the child is under 18 years of age). For the purposes of this protocol, the term “child” refers to anyone under the age of 18 years.
You see that the duty to report in Ontario relates to a “child” under the age of 16 years? And that the duty to report in Quebec relates to a “child” under the age of 18 years?
The Pembroke Diocese straddles both the Province of Ontario and the Province of Quebec, hence the diocese has to comply with reporting legislation in both provinces. It seems that perhaps a decision was made to standardize the protocol for both provinces, hence the protocol defines “child” as “anyone under the age of 18 years.”
But, does anything there tell you that the reporting is to be done if and only if the abuse transpired when complainant/victim was under age 18?
Not really, does it? However, the next para with the title “Report by an Adult” is a heads up to go back and sort it out, because, as I have said before, this clearly indicates that these are being handled as “historical” abuse allegations and are therefore being treated differently.
Thankfully I don’t have to try to explain this further. According to Mr. Pappin (emphasis in original):
“The duty to report applies when the victim is under 18 at the time of the report, not the time of the incident. When, as in Fr. Chabot’s case, the allegation is made after the alleged victim is an adult, the alleged victim has the option of going to the authorities or not. The Bishop (or his delegate) has to respect the privacy of the adult complainant. This process is outlined in section 3 of the reporting section of the protocol.”
(Section 3 is “Report by an Adult.” )
So, the “Obligation to Report” is pertinent only to those complainants who are under age 18 when they report their abuse. In those cases there is no duty to report to police, but there is a duty to report to CAS.
Now, for clarity’s sake, back briefly to the Ottawa Citizen and the article by Meghan Hurley in which she wrote:
“When an adult brings forward allegations of sexual assault, the priest will tell the victim to contact the police.”
That’s not the case. The victims are not told to contact police. As I said earlier, the complainants/victims are not told to contact police, nor are clergy or the delegate obligated to report to police. The victims/complainants are advised of their “right” to contact police.
And now back to what I see as the marginalization of victims of historical sexual abuse, the minimization of the crimes of their molesters, and the concurrent minimization of the threat these molesters pose to the community, specifically to children.
The protocol doesn’t say it, but what is happening is that all historic allegations are treated in a different manner, and are in fact minimized. Add to that the fact that when the molester/suspect is alive there is no concern whatever that children are or may be at risk. None.
And there you have it. True, according to the protocol an adult complainant will be informed of his/her “right” to go to police to commence a criminal investigation, but, that’s it. When it comes to historic abuse and the protocol the duty to report is non existent.
As an aside, look again at this section of # 3 Report by an Adult (emphasis added):
“… the Bishop’s Delegate will immediately inform the Complainant of the Complainant’s right to contact the police to commence a criminal investigation. If the Complainant prefers another procedure, the Complainant’s wishes are to be respected.”
“If the compliant prefers another procedure”?
What other “procedure” might a complainant prefer?
What “procedure” might be preferable to an adult who, as a child, endured sexual abuse at the hands of a priest?
I just don’t know. I know of many a victim of clerical sexual abuse across this country who, as an adult, went to a diocese and wanted no more than an acknowledgment of the abuse and an apology. They didn’t get it.
I know of victims who wanted an apology and were offered money. Some refused. Others accepted.
I know of victims who wanted an assurance that “Father” would be removed from ministry and not allowed near children. Many were assured it would be done. In a good number of cases “Father” later surfaced in another parish, sometimes in another diocese.
I know of victims who simply ask that “Father” be sent for treatment so that he can ‘get better.’ “Father” is sent off for treatment, and in many cases, in short order is recycled into another parish, or diocese, or ministry, – or maybe even another country. And, yes, sad to say, in a number of those cases children are willfully placed at risk, and sadder yet, are molested.
What kind of “procedure” would an adult victim prefer as an alternate to reporting “Father” to police? Can anyone help me here?
(3) A soft touch for molesters whose victims struggled for years to come forward
As I said, when allegations are reported by an adult victim, everything changes. It may not be great when a victim reports before age 18, but it’s really unconscionable when the victim happens to be older than 18.
It’s great for the “historical” molester mind you –
Think it through.
Why the difference in protocol when, for example, the accused priest in each of the following cases is alive, age 58, and serving somewhere in some capacity as a priest?
(i) a 17-year-old reports that he was molested by Father V eight years ago (ie eight-years-old when abused)
(ii) a 16 year-old reports that he was molested by Father W yesterday (i.e., 16-years-old when abused)
(iii) an 18 -year-old reports that he was molested by Father X two years ago (i.e., 16 years old when abused)
(iv) a 20 year old reports that he was molested by Father Y five years ago? (i.e., 15-years-old when abused)
(v) a thirty-year-old reports that he/she was molested by Father Z 20 years ago (i.e. ten-years-old when abused)
Believe it or not, the only duty to report to anyone is in cases i and ii. In both those cases there is a duty to report to CAS. In each of the other three cases, there is no duty to report to anyone.
Crazy?
I think it is. Dangerously crazy.
Why, for example, are Fathers W and X considered a risk to children, while Fathers Y and Z are not?
Where’s the logic here? Are Fathers Y and Z any less molesters? and are they any less a threat to children than Fathers W and X? If yes, how so?
(5) Does the Pembroke Diocese protocol adhere to the OCFSA duty to report?
I’d say no.
Remember Perry.
The charges against Perry were stayed.
In it’s 31 January 1995 decision to stay the charges against Perry the Board of Inquiry ruled in part:
Part 3 of the Child and Family Services Act has been created to provide legislative response to the obvious public demand for protection of children. To facilitate such protection and to facilitate reporting of suspected cases of abuse, the legislature created an immunity for those who form suspicion upon reasonable grounds and who are required by the legislation to forthwith report it. The reporting creates a facility to protect not only the child who may have suffered abuse but also any other children that might come into future contact with the suspected abuser. Therefore. even after the child who may have been abused reaches the age of majority, the duty to report the suspicion continues to exist.
In it’s 07 December 1995 decision to dismiss the appeal of the former with costs the Ontario Divisional Court ruled in part that:
“in my view, Const. Dunlop was an active duty police officer who gained information in the course of his “professional or official duties” – it does not matter that he was not the officer specifically assigned to the case – all police officers have a proimary duty to prevent the commission of crime. Nor does it matter that the complainant D.S. was no longer a child as he was at the time of the alleged abuse.
Const. Dunlop in September 1993 had “reasonable grounds to suspect a child …may have suffered abuse.” He had a duty, therefore, to “forthwith report the suspicion and information on which it is based to a society.
The duty to report, and the intent of the OCFSA – even with an adult complainant, was clear to many, judges included.
Even Justice Glaude seemed to recognize that the duty to report to CAS encompasses historical allegations. In his Report Justice Glaude wrote:
“The government of Ontario should amend the Child and Family Services Act to clarify that the duty to report provisions apply to cases of historical abuse where there is a risk that the alleged abuser has current access to children.”
The judges at Divisional Court had no problem determining that Perry did the right thing and David Silmer’s age was irrelevant.
But, on the heels of a $60M inquiry, a call for clarity in the Act.
It seemed to be understood by many, but not, obviously by all.
And, to date, no response . No attempt by government officials to quell this confusion.
And, here we are.
The Pembroke Diocese has protocols which would ensure a Perry Dunlop’s silence. The protocol is clear. There is no duty to report to CAS when the complainant is an adult.
Why not?
Who, benefits?
Not the victim.
Certainly not the children who are or may be willfully placed or left at risk.
Not parents who have, unbeknownst to them, naively placed their trust in a real or suspect molester.
Who then gains?
Well, there is no denying that the molester gains. His name and crimes will probably never the see the light of day.
Those clergy who may have enabled, recycled or covered-up for the molester gain. Like the molester, their names and their betrayal of the faithful may never see the light of day.
Beyond that, I really don’t care much who else gains. There is a problem here. A serious problem.
Those who are not from the Pembroke Diocese, check your diocesan sex abuse protocols. I think you will find much the same thing..
Meanwhile Catholics in the Pembroke Diocese are saddled with a protocol which minimizes the abuse endured by an adult victim, and likewise minimizes the threat a molester poses to innocent children. Those who drafted the legislation without doubt are familiar with the OCFSA. Why then the obvious distinction between duty to report for those complainants under 18 and those who are 18 or over? Is there a lawyer advising there is no need to comply with a duty to report when the allegations are deemed historic? Is that what’s going on here? Or, is it just a plain old case of go gently on the molesters ?
The one for sure is that the safety and well-being of children are not foremost in anyone’s mind anywhere. Molesters are. Why else a protocol which first and foremost fails to demand a duty to report to police for ALL sex abuse allegations ? Why?
In closing, lest anyone think I am advocating a duty to report to CAS here, I am not. That’s the legislation we have. We’ve had it for years. Right now we’re stuck with it. However I must say that as bad as the situation was in Cornwall I still believe that the primary duty to report should and must be to police. We are talking about criminal acts involving children. Let every police officer be bound by a duty to report to CAS if need be, and, if need be let them seek assistance from CAS, but, the duty to report must be to police, and it must be police who investigate all reports child sex abuse.
Enough for now,
Sylvia