Safeguarding children from
abuse
2.1 Surprisingly little information is
available about the true extent of child abuse in the
UK. Official data only records what is brought to the
attention of the authorities. For example, child protection
registers record the numbers of children (currently about
30,000) for whom the likelihood of future significant
harm is high. They do not record those who are known to
have been subjected to maltreatment in the past, and therefore
give no estimate of prevalence or incidence. Very little
research examines child abuse in relation to those who
do not come to the notice of the child welfare or protection
services.
2.2 As regards sex abuse, a Home Office
study in 1995 showed that if the Sex Offenders Register
had been in effect since 1953, 125,000 offenders would
have to register, 25,000 of these for life. Most incidents
are not reported and only a minority of reported cases
result in prosecution. We do know, however, that offenders
come from every social group and category. Most, but not
all, sex offenders are male. The majority of offences
are committed by individuals known to the child and often
by the family. 80% of offences against children are perpetrated
in their home or that of the perpetrator. Girls are more
likely to be abused within the family, boys outside. Histories
of individual offending can range between a single event
within or outside the family to ongoing abuse over many
years. A failure to develop appropriate social skills
and sexual experience can enhance the likelihood of offending.
The availability and use of pornography and/or drugs and
alcohol may dis-inhibit potential perpetrators. Add a
context in which the perpetrator feels s/he will not be
caught and the likelihood of offending is even more increased.
2.3 Knowledge of and concern about child
abuse in Britain grew considerably during the 1980s and
early 1990s. In 1994, following a consultation, the Catholic
Bishops' Conference of England and Wales received a working
party report Child Abuse: Pastoral and Procedural
Guidelines (referred to throughout this report as
the 1994 Guidelines). This was commended by the
bishops to dioceses and religious orders. In 1996 another
Church working party produced a further report on victims
and survivors, Healing the Wound of Child Sexual Abuse:
a Church Response. The Church began an internal review
of the arrangements in place in dioceses some eighteen
months ago.
2.4 In the meantime, public knowledge
and concern about child abuse in the UK have continued
to grow. It was emphasised in 1994 that the Guidelines
would need to be kept under review in the light of increasing
knowledge about child abuse in general and the effectiveness
of the procedures in particular. In addition, however,
a number of high profile cases concerning priests have
focused public attention on the extent of the Church's
commitment and the adequacy of its arrangements. It is
against this background that this review was initiated.
2.5 Child abuse is a great evil. Much
of the publicity about it concentrates on sexual abuse,
but there is also emotional and physical abuse and neglect
(and related computer and internet offences). All abuse
can leave deep scars on victims and their families. It
is particularly abhorrent when a child or young person
is abused by people in a position of trust and responsibility.
It is most abhorrent when that position of trust is that
of a member of the clergy or a lay Church worker.
2.6 In our society we expect all organisations
that have responsibility for the care of children to have
arrangements that protect those children and promote their
welfare. The care of children is at the forefront of the
teachings of Christ and is, therefore, one of the primary
responsibilities of all members of the Church led by their
priests and bishops. Because of the Church's particular
message and the position it holds, it seems to us to be
of great importance that it should be an example of excellence,
which others will look to and want to follow. To achieve
this depends on good policies and effective management
and people, being alert to what is going on in the world
that relates to the Church's mission and being open to
advice and guidance. By a vigorous approach on these lines
the Church will be able to become a significant part of
the solution to the evil of child abuse in our society.
2.7 We have no doubt that there is a
great desire among the huge majority of members of the
Church, both clerical and lay, to achieve this result.
We have also been impressed by the work that many in the
Church are already doing to bring this about. Our report,
therefore, is based on this foundation: that the
Catholic Church in England and Wales should become an
example of best practice in the prevention of child abuse
and in responding to it. It is likely, however,
at best to be some time, even if all our further recommendations
are followed, before it will be seen in such a light.
2.8 For reasons which were understandable
at the time, the 1994 Guidelines concentrated
very much on the response to allegations of child abuse.
In the present climate much more emphasis is placed on
child protection and it is worthy of note that almost
all dioceses have in fact adopted policies and practices
which are designed to prevent abuse occurring in the first
place. Whilst the proper handling of allegations is important,
it is much more important that the opportunity for abuse
does not occur because an effective regime of good practice
is in place, and is known to be so. Our second recommendation
is that the top priority for an exemplary organisation
is to have preventative policies and practices operating
effectively in parishes, dioceses and religious orders
which will minimise the opportunity for abuse.
2.9 It is necessary, however, to face
the reality that no organisation which has dealings with
children can eliminate the risk of child abuse completely.
It is therefore important to complement prevention policies
with a clear understanding by those in positions of responsibility
that abuse of their position in any way will inevitably
have the most serious consequences for them.
2.10 The 1994 Guidelines were
created to guide bishops and superiors of religious orders.
Because of the way in which the work of the Church is
carried out, it remains of high importance that the various
steps we recommend are adopted both by bishops and their
dioceses and by superiors of religious orders. As we recommend
later there will need to be monitoring of what is being
done and effective action to remedy the situation if that
is necessary. This is not as straightforward as it may
sound. Whilst it is true that the Church is a hierarchical
organisation, the common belief that, for example, the
Archbishop of Westminster has complete authority over
matters affecting the different dioceses in England and
Wales is not the case. Each diocesan bishop exercises
his authority autonomously though not in a totally independent
manner. He must act in accordance with the norms of canon
law, and in communion with the whole episcopal college
and with its head, the Pope. In canon law every diocesan
bishop has equivalent status, and only the Holy See has
the power to control and limit the exercise of the bishops'
authority, religious orders and congregations are governed
by their own specific law and constitutions and, in general,
the diocesan bishop has no capacity to intervene in their
internal affairs. He does, however, have a certain authority
over individual members of those orders and congregations
whom he has given permission to exercise a pastoral ministry
in his diocese. However we are confident that, by acting
together in the best interests of children and young people
and of the Church, bishops and religious superiors can
put in place arrangements which are effective and can
restore confidence in the Church's approach.
2.11 There is also an emphasis in the
1994 Guidelines on the position of members of
the clergy. That is understandable because of the unique
character of the priesthood and the central role which
priests play in the life of the Church. For the same reason,
of course, the occasions on which priests have been found
guilty of abusive behaviour have been the source of the
greatest scandal. But, as we know, child abuse occurs
in a variety of settings in the home and in organisations,
predominantly where some relationship has been established.
The potential for abuse is therefore a risk in any organisation
or setting where children are a part. So what is necessary,
and what we are recommending, are arrangements that apply
to lay workers as fully as to clergy, regardless of age,
gender or ethnicity.
2.12 Active implementation of good practice
on preventing abuse and responding to allegations of abuse
is key. But this action needs to be related to a clear
and shared policy. We recommend this policy statement:
The Church recognises the personal
dignity and rights of children towards whom it has a
special responsibility and a duty of care. The Church,
and individual members of it, undertake to do all in
their power to create a safe environment for children
and young people and to prevent their physical, sexual
or emotional abuse. The Church authorities will liaise
closely with statutory agencies to ensure that any allegations
of abuse are promptly and properly dealt with, victims
supported and perpetrators held to account.
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