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Annex I

 


Summary of recommendations for national and local implementation

(The terms in brackets refer to the timescale for implementation. ST: within 12 months of the date of publication and acceptance of this report; MT: after 12 months from the date of publication and acceptance of this report)

NATIONAL

Conference of Bishops and Conference of Religious

Recommendation 1 (para 2.6)
The Conference of Bishops and Conference of Religious should publicly declare and renew their affirmation of the One Church approach to safeguarding children, young
people and vulnerable adults through the promotion of a sustained and sustainable culture of constant vigilance. (ST)

Recommendation 2 (para 2.35)
The Conference of Bishops and Conference of Religious should develop Codes of Conduct for all clergy, non clergy religious and those who work in the service of the
Church, including volunteers. Such Codes should not be confused with, and should be separate from, any ‘terms and conditions’ handbook for clergy or any other group of Church workers. (ST)

Recommendation 4 (para 3.18)
The Catholic Safeguarding Advisory Service should sit within the Department of Christian Responsibility and Citizenship of the Bishops’ Conference. (ST)

Recommendation 5 (para 3.18)
An appointed member of the Conference of Religious should be invited to join the Department as a permanent member. (ST)

Recommendation 6 (para 3.23)
The Catholic Safeguarding Advisory Service should report and be accountable to the Bishops’ Conference and Conference of Religious through the new National Safeguarding Commission. (ST)

Recommendation 7 (para 3.23)
The National Safeguarding Commission should be chaired by a lay person of seniority and with real credibility appointed by the Conference of Bishops and Conference of Religious; there should be two vice chairs, one an appointed member of the Conference of Bishops and the other an appointed member of the Conference of Religious. (ST)

Recommendation 19 (para 3.40)
Going forward, the Catholic Safeguarding Advisory Service should be funded at least at the same or a higher level than is the case now. (ST/MT)

Recommendation 34 (para 3.66)
Adequate resources should be made available to the CoR/ Regional Religious Commissions’ link person, if necessary making this a full-time post, with specific responsibility for co-ordinating the work of the four Commissions (MT)

Recommendation 40 (para 4.21)
The Conference of Bishops and Conference of Religious should reaffirm their commitment to a safeguarding agenda in which the welfare of the child is paramount. (ST)

Recommendation 42 (para 4,21)
The Conference of Bishops and Conference of Religious should give consideration to merging the proposed investigation and review process with their internal disciplinary
processes to avoid unnecessary duplication. (ST)

Recommendation 67 (para 6.2)
The Catholic Bishops’ Conference of England and Wales and the Conference of Religious should now adopt comprehensive safeguarding policies and procedures that cover both children and vulnerable adults. (ST)

Recommendation 68 (para 6.4)
The Conference of Religious, the Association of British Contemplatives and the Union of Monastic Superiors should develop systems for monitoring these communities and
ensuring that there is a way for people to report concerns. (MT)

Recommendation 69 (para 6.9)
The policies and procedures adopted by the Catholic Bishops’ Conference of England and Wales and the Conference of Religious for the protection of vulnerable adults should be based on the definition of vulnerable adults set out in the Safeguarding Vulnerable Groups Act 2006. (ST)

Recommendation 72 (para 7.5)
The Bishops’ Conference of England and Wales, in consultation with the Conference of Religious, should make the appropriate decreta generalia and secure canonical recognitio of them (c. 455), so that there will be a special territorial law (c. 13§1) for England and Wales which would both give juridical authority to the Church’s most important safeguarding rules for children and vulnerable adults and also secure a right of recourse to the Holy See against a diocese, religious congregation or other juridical person which failed to fulfil the obligations laid down in that law. (ST)

National Safeguarding Commission

Recommendation 6 (para 3.23)
The Catholic Safeguarding Advisory Service should report and be accountable to the Bishops’ Conference and Conference of Religious through the new National Safeguarding Commission. (ST)

Recommendation 7 (para 3.23)
The National Safeguarding Commission should be chaired by a lay person of seniority and with real credibility appointed by the Conference of Bishops and Conference of Religious; there should be two vice chairs, one an appointed member of the Conference of Bishops and the other an appointed member of the Conference of Religious. (ST)

Recommendation 8 (para 3.23)
The National Safeguarding Commission should have both lay and clerical representation, including 3 Bishops (one of whom should be one of the Bishops in the Department of Christian Responsibility and Citizenship with oversight of CSAS), 3 representatives of CoR (one of whom should be the CoR member invited to join the Department of Christian Responsibility and Citizenship to oversee the running of CSAS), 3 lay Chairs of Commissions elected by all the Commissions to represent them (including one Regional Religious), and 3 additional lay members with relevant experience and knowledge. (ST)

Recommendation 9 (para 3.23)
If the Chair of the Department of Christian Responsibility and Citizenship is not also the Bishop with day to day oversight of CSAS then he should be invited to sit on the National Safeguarding Commission as an ex-officio member. (ST)

Recommendation 10 (para 3.23)
The task of appointing the National Safeguarding Commission should be carried out by the Chair and Vice-chairs. An open and transparent process, including external advertisement, should be used for the recruitment of the lay members. The skills required on the Commission should be assessed (for example safeguarding vulnerable adults and children issues, knowledge of law and employment matters) and the results used to inform the recruitment process. (ST)

Recommendation 11 (para 3.23)
National Safeguarding Commission members should be appointed to terms of 3 years and should normally be able to serve no more than two terms. A process of rotation should be applied in terms of retirement to assist continuity. (MT)

Recommendation 12 (para 3.23)
The National Safeguarding Commission should meet at least quarterly and both its agendas and minutes should be public documents, with the use of confidential annexes where appropriate. The NSC’s quorum should be a third of its membership. (ST)

Recommendation 14 (para 3.29)
The NSC should make annual reports to the Bishops’ Conference and Conference of Religious about its progress in ensuring compliance. These reports should be open documents with the use of confidential annexes where appropriate. (MT)

Recommendation 15 (para 3.29)
The NSC may commission the CSAS to undertake thematic investigations to assist it in enforcing compliance with nationally agreed policies and in making reports to the Bishops’ Conference and Conference of Religious. (MT)

Recommendation 35 (para 3.66)
An audit should be carried out within the next three years of any non-aligned congregations who have yet to take up one of the three options. This exercise, in which Diocesan Vicars for Religious can expect to play a key role, would need to include all contemplative orders. (MT)

Recommendation 49 (para 4.67)
The members of the Review Panel should be appointed from a panel, set up and administered by the CSAS on behalf of the new National Safeguarding Commission. (ST)

Recommendation 60 (para 5.16)
The National Safeguarding Commission should commission the Catholic Church Insurance Association to conduct an urgent review of insurance arrangements with the aim of moving towards a One Church policy on insurance matters. This review should not be an impediment to a just resolution of current cases. Individual dioceses and religious congregations should not commit themselves to respond to allegations in a way that contravenes national policies. (ST)

Catholic Safeguarding Advisory Service

Recommendation 3 (para 3.11)
The national unit’s name should be changed to the Catholic Safeguarding Advisory Service (CSAS) to reflect its primary role in future as one of co-ordination, advice and support in respect of the wider job of safeguarding children and vulnerable adults. (ST)

Recommendation 4 (para 3.18)
The Catholic Safeguarding Advisory Service should sit within the Department of Christian Responsibility and Citizenship of the Bishops’ Conference. (ST)

Recommendation 6 (3.23)
The Catholic Safeguarding Advisory Service should report and be accountable to the Bishops’ Conference and Conference of Religious through the new National Safeguarding Commission. (ST)

Recommendation 13 (para 3.23)
The Director of the Catholic Safeguarding Advisory Service should provide expert safeguarding advice to the NSC. (ST/MT)

Recommendation 15 (para 3.29)
The NSC may commission the CSAS to undertake thematic investigations to assist it in enforcing compliance with nationally agreed policies and in making reports to the Bishops’ Conference and Conference of Religious. (MT)

Recommendation 16 (para 3.31)
The Catholic Safeguarding Advisory Service should focus specifically on the following activities:

  • Providing advice to members of the Church about safeguarding issues. (ST/MT)
  • Overseeing and co-ordinating safeguarding training within the Church. (ST/MT)
  • In the shorter term completing the development of policies that Lord Nolan recommended and others that are outstanding, including policies on vulnerable adults, whistleblowing, information sharing and the national database (see below). (ST)
  • Ensuring the Church’s policies on safeguarding children and vulnerable adults are kept up to date with good secular practice and are accessible to people at all levels in the Church, with an emphasis on people in parishes. This will require a better balance than has been achieved to date between the professional language and the pastoral language of the Church to communicate the importance of safeguarding. Current policies ought to be reviewed and rationalised wherever possible, taking account of experience on the ground, and short ‘lay versions’ produced. A Parish Pack, specifically informed by parish experience, and in particular the experiences of children and young people themselves, should also be made available as soon as possible following the publication of this report. (ST)
  • Identifying, disseminating and celebrating good safeguarding practice in the Church. (ST/MT)
  • Being the point of liaison with other national stakeholders - both safeguarding units in other Churches and secular organisations concerned with safeguarding children and vulnerable adults, including Government. (ST/MT)
  • Co-ordinating the work of the Review Panels and maintaining up to date lists of appropriately trained investigators and risk assessors. (ST/MT)
  • Producing an annual business report for the public and wider Church community which reviews the work of the CSAS as a whole and reflects on the achievements of the Diocesan and Religious Commissions. Consideration should be given to making this document less of a statistical abstract and with greater emphasis on the softer, preventive end of safeguarding so that it becomes less labour-intensive to produce, both for staff at the centre and staff in the Dioceses and Religious Congregations. (MT)

Recommendation 17 (para 3.36)
The CSAS should continue to run the central database for the time being. This should continue to include both paid staff and volunteers. (ST)

Recommendation 18 (para 3.36)
The CSAS should give priority to developing a national database policy and guidance that is fully informed by user group experience. (ST)

Recommendation 19 (para 3.40)
Going forward, the Catholic Safeguarding Advisory Service should be funded at least at the same or a higher level than is the case now. (ST/MT)

Recommendation 27 (para 3.50)
Commissions, working in partnership with the CSAS, should actively engage with children and young people to ensure their views are taken account of in developing, implementing and evaluating safeguarding arrangements that directly affect them. (MT)

Recommendation 29 (para 3.52)
Each CPC/CPO must be trained and inducted to an agreed standard set by the Catholic Safeguarding Advisory Service. (ST/MT)

Recommendation 30 (para 3.52)
Central support for CPCs/CPOs should be enhanced by national/regional meetings with an emphasis on training and sharing good practice. (ST/MT)

Recommendation 32 (para 3.54)
A minimum standard of induction for LCPRs should be set by Catholic Safeguarding Advisory Service. (ST)

Recommendation 38 (para 3.73)
Seminaries and other formation houses responsible for the training of priests and religious must agree in consultation with the CSAS the core components of a common safeguarding curriculum that raises awareness, familiarises seminarians and those in religious formation with the national policies and in particular seeks to develop core competencies to give priests the confidence to manage safeguarding matters in their parish. This should be achieved within 12 months of the publication of this report. It will be the role of the CSAS to support this programme and advise on sources of training to deliver it. (ST)

Recommendation 43 (para 4.25)
The Catholic Safeguarding Advisory Service should develop an information sharing policy as soon as possible and no later than 12 months from the publication of this report. (ST)

Recommendation 49 (para 4.67)
The members of the Review Panel should be appointed from a panel, set up and administered by the CSAS on behalf of the new National Safeguarding Commission. (ST)

Recommendation 50 (para 4.67)
A Review Panel should comprise a minimum of 3 members and a maximum of five members and should include those with appropriate professional experience in law and safeguarding of children and/or vulnerable adults, investigation processes and Canon Law where practicable. An independent person should chair the Review Panel. (ST)

Recommendation 56 (para 5.9)
The national policies for responding to allegations of abuse should indicate the timescale within which appropriate action should normally be taken, and to whom the matter should be referred if a satisfactory response is not received. (ST)

Recommendation 59 (para 5.13)
The CSAS should ensure the co-ordination of support for victims where the alleged abuse covers several dioceses and religious congregations. (ST/MT)

Recommendation 71 (para 6.11)
The current training for priests and religious (both in formation in the seminaries and as part of ongoing formation and study days) and other workers in the church should be expanded to include awareness of abuse of vulnerable adults – not least because they may be a very significant source of protection for those adults who are at risk. Commissions and seminaries, supported by the CSAS, will be responsible for undertaking and facilitating such training. (ST/MT)

LOCAL

 

Dioceses and Religious Congregations

Recommendation 20 (para 3.44)
Dioceses must ensure that their safeguarding functions are adequately resourced. The budget allocated is for local determination but has to be justified in terms of safe processes and minimisation of risk. (ST)

Recommendation 21 (para 3.46)
There must be clear accountability and governance arrangements for each safeguarding role, e.g. Local Child Protection Representative/CPO/CPC/Chair/Commission member.
(ST/MT)

Recommendation 22 (para 3.46)
Recruitment to each of the above safeguarding roles must be transparent. The number and type of posts should be agreed locally. (ST/MT)

Recommendation 23 (para 3.46)
The Bishop should attend a full Commission meeting at least once a year and should meet with the CPC/CPO/Chair at least three times a year. (ST)

Recommendation 24 (para 3.46)
Each Commission should have an independent lay Chair with extensive safeguarding experience in working with children and/or vulnerable adults, e.g. Social Care, Probation and Family Law within 12 months of the publication of this report. An external assessor should be used as a matter of routine on their appointment panel. (ST)

Recommendation 25 (para 3.46)
The composition of the local Commissions should allow for sufficient members with safeguarding experience in work with children and/or vulnerable adults to ensure appropriate expertise available at all meetings of the Commission. The exact numbers and experience can be determined locally. (ST/MT)

Recommendation 26 (para 3.50)
The work of Commissions should be as transparent as possible; the names of Commission members should be included in the diocesan directory and website; notices of meetings, agendas and non-confidential minutes should be published on the website. (ST)

Recommendation 27 (para 3.50)
Commissions, working in partnership with the CSAS, should actively engage with children and young people to ensure their views are taken account of in developing, implementing and evaluating safeguarding arrangements that directly affect them. (MT)

Recommendation 28 (para 3.52)
When a vacancy arises Commissions should ensure that at least one CPC or CPO postholder in each diocese has an appropriate professional qualification and experience. Professional consultancy from experts in safeguarding must be made available to CPCs/CPOs at agreed regularity and as agreed with the Chair of the Commission. (ST/MT)

Recommendation 29 (para 3.52)
Each CPC/CPO must be trained and inducted to an agreed standard set by the Catholic Safeguarding Advisory Service. (ST/MT)

Recommendation 30 (para 3.52)
Central support for CPCs/CPOs should be enhanced by national/regional meetings with an emphasis on training and sharing good practice. (ST/MT)

Recommendation 31 (para 3.54)
LCPRs should be nominated by the parish priest but with a system for approval and appointment by the CPC/CPO. Where a parish has a safeguarding team, each member should be recruited and inducted to the level of a LCPR. (ST/MT)

Recommendation 35 (para 3.66)
An audit should be carried out within the next three years to any non-aligned congregations who have yet to take up one of the three options. This exercise, in which Diocesan Vicars for Religious can expect to play a key role, would need to include all contemplative orders. (MT)

Recommendation 36 (para 3.66)
Congregations which have their own Commission should be willing to have their arrangements appraised by one of the four regional Commissions. (MT)

Recommendation 37 (para 3.66)
Appropriate training should be made available to contemplative congregations either through their respective Regional Commission or through the local diocese. (ST/MT)

Recommendation 39 (para 3.74)
Church leaders, both Bishops and Congregational Leaders, and all clergy should commit themselves to a full day’s study and/or training concerning safeguarding during the first 12 months after this Commission has reported and thereafter to a day’s ‘top up’ study once every three years. (ST/MT)

Recommendation 41 (para 4.21)
Bishops and Congregational Leaders and those acting on their behalf should apply the civil standard of proof in the investigation and determination of any matter relating to the abuse of children and vulnerable adults. (ST)

Recommendation 44 (para 4.55)
Where an external risk assessment is considered necessary for a member of the church accused of abuse against a child or vulnerable adult he or she should not be expected to participate in a group risk assessment unless he or she has pleaded guilty to, or has been convicted of, the offence. (ST)

Recommendation 45 (para 4.57)
Each Diocesan Commission, and for a religious congregation dealing with an allegation, the relevant Religious Commission, should arrange for a Panel to examine the enquiries of an appointed independent investigator and make recommendations to the Bishop or Congregational Leader. An independent person should chair the Commission Panel. (ST)

Recommendation 46 (para 4.57)
For the occasions where it is considered beneficial for non Commission members to sit on the Panel convened by the Diocesan/Religious Commission, a register of those willing and suitable to serve on the Panel should be kept either within a Diocesan or Religious Commission or in collaboration with another Diocesan or Religious Commission as part of any reciprocal arrangements. (ST)

Recommendation 47 (para 4.67)
A Bishop or Congregational Leader should be able to seek of his/her own volition a review by a specially convened Review Panel of the recommendations made and the process of enquiry following the investigation of an allegation of abuse. He/she must seek such a review in response to a request from the accused and he/she may do so at his/her own discretion in response to a request from the victim/complainant. (ST)

Recommendation 48 (para 4.67)
The Review Panel should review the investigations and recommendations of the Commission Panel as required and make recommendations to the Bishop or Congregational Leader. (ST)

Recommendation 51 (para 4.67)
Careful records should be kept by the CPC/CPO, the appointed investigator, the Commission panel, the Review Panel and by the Bishop or Congregational Leader to satisfy the Church’s need for a proper audit of its decision making processes. (ST)

Recommendation 52 (para 5.3)
Those with pastoral responsibility should be ready to listen to those who have suffered abuse, and to learn from them because they have much to teach the Church. Bishops, Congregational Leaders, priests and religious must take a lead in ensuring that the Church is a safe place for vulnerable people and in showing pastoral concern for all who have suffered abuse. This duty is particularly pressing when the abuse has taken place within the family of the Church. (ST)

Recommendation 53 (para 5.8)
The Church should encourage those who have been abused by someone working in the name of the Church to come forward and disclose the abuse. (ST)

Recommendation 55 (para 5.8)
If a complaint or allegation is made to a member of a team responsible for safeguarding who believes that he or she is not competent to deal with the matter, either because the alleged perpetrator is not a member of the diocese/congregation for which that office is responsible, or because the alleged victim does not come under the heading of “children” or “vulnerable adult”, the person making the complaint must nevertheless be received with care and the concern must be heard and recorded. The officer concerned should offer to pass the matter on to the person who is competent to deal with it and the complainant should be told to whom the information is being passed. If there is uncertainty about who is competent to deal with the matter, the Catholic Safeguarding Advisory Service may be asked for their advice. (ST)

Recommendation 57 (para 5.12)
Particular attention should be given to the role of an appropriate “support person”, recommended by the Nolan report (recommendations 71-74). It should be made clear to the person who is being supported that:

(a) Any disclosure of harm, or danger of harm, to a child or vulnerable adult must be reported to the appropriate authorities;

(b) In other cases, information and opinions voluntarily given to the “support person” may only be passed on to the local Commission, or other bodies, with the express consent of the person being supported;

(c) Any statement required for legal or safeguarding purposes should be taken by someone from the appropriate investigating agency, not from the “support person”. (ST)

Recommendation 58 (para 5.13)
The person receiving support may request that the “support person” should not be a member of the clergy of that diocese or of the congregation in question, and wherever it is possible the diocese or congregation should respect that request. (ST)

Recommendation 62 (para 5.21)
When a priest is asked or required to withdraw from active ministry on account of an allegation being made against him, or when a priest is allowed only restricted ministry, it must be made clear in a written agreement what sacramental ministry is permitted to him, bearing in mind the circumstances and the place where he will be located. (ST)

Recommendation 63 (para 5.21)
When a priest or religious is asked or required to live in a different place on account of an allegation being made against him or her, it is imperative that he or she should not have access to the victim/complainant or other children or vulnerable adults pending the resolution of the case. (ST)

Recommendation 64 (para 5.21)
An allegation made against a person who is dead or not capable of responding to the allegation should be listened to by the Church and investigated as far as possible. This should be done even though it will often be difficult to establish the truth; the statutory authorities may not be willing to investigate the matter; and even though it may be impossible to sustain claims for compensation. (ST)

Recommendation 65 (para 5.21)
The information given by the victim in any statement to the statutory authorities and/or Church investigating an allegation of abuse should be made available routinely to those involved in the risk assessment and treatment of the abuser. (ST)

Recommendation 66 (para 5.21)
If a person has been removed from working for the Church because of concerns about his suitability for work with children, this should be stated if a reference is given for that person. (ST)

Recommendation 70 (para 6.11)
The Diocesan Child Protection Commissions and Regional Religious Child Protection Commissions should become Safeguarding Commissions responsible for safeguarding children and vulnerable adults. (ST)

Parishes

Recommendation 21 (para 3.46)
There must be clear accountability and governance arrangements for each safeguarding role, e.g. Local Child Protection Representative/ CPO/CPC/Chair/Commission member. (ST/MT)

Recommendation 22 (para 3.46)
Recruitment to each of the above safeguarding roles must be transparent. The number and type of posts should be agreed locally. (ST/MT)

Recommendation 31 (para 3.54)
LCPRs should be nominated by the parish priest but with a system for approval and appointment by the CPC/CPO. Where a parish has a safeguarding team, each member should be recruited and inducted to the level of a LCPR. (ST/MT)

Recommendation 32 (para 3.54)
A minimum standard of induction for LCPRs should be set by Catholic Safeguarding Advisory Service. (ST)

Recommendation 33 (para 3.54)
As well as a clear job description for LCPRs, an agreed level of support should be provided for them by the parish priest in addition to the training and support provided by the diocese. (ST)

Recommendation 39 (para 3.74)
Church leaders, both Bishops and Congregational Leaders, and all clergy should commit themselves to a full day’s study and/or training concerning safeguarding during the first 12 months after this Commission has reported and thereafter to a day’s ‘top up’ study once every three years. (ST/MT)

Recommendation 52 (para 5.3)
Those with pastoral responsibility should be ready to listen to those who have suffered abuse, and to learn from them because they have much to teach the Church. Bishops, Congregational Leaders, priests and religious must take a lead in ensuring that the Church is a safe place for vulnerable people and in showing pastoral concern for all who have suffered abuse. This duty is particularly pressing when the abuse has taken place within the family of the Church. (ST)

Recommendation 53 (para 5.8)
All churches and other institutions run by the Church should have notices giving the names, photographs and contact details of those who may be contacted by anyone who
has a concern about the abuse of children and vulnerable adults. These details should also be put on websites that children and the vulnerable are likely to visit. There should be at least two names given: one of a person who is near at hand, one of a person who is not directly connected with the church or institution in question. The telephone number of “Childline” should also be given and made clearly visible for children to see. (ST)

Recommendation 55 (para 5.8)
If a complaint or allegation is made to a member of a team responsible for safeguarding who believes that he or she is not competent to deal with the matter, either because the alleged perpetrator is not a member of the diocese/congregation for which that office is responsible, or because the alleged victim does not come under the heading of “children” or “vulnerable adult”, the person making the complaint must nevertheless be received with care and the concern must be heard and recorded. The officer concerned should offer to pass the matter on to the person who is competent to deal with it and the complainant should be told to whom the information is being passed. If there is uncertainty about who is competent to deal with the matter, the Catholic Safeguarding Advisory Service may be asked for their advice. (ST)

Seminaries and other formation houses

Recommendation 38 (para 3.73)
Seminaries and other formation houses responsible for the training of priests and religious must agree in consultation with the CSAS the core components of a common safeguarding curriculum that raises awareness, familiarises seminarians and those in religious formation with the national policies and in particular seeks to develop core competencies to give priests the confidence to manage safeguarding matters in their parish. This should be achieved within 12 months of the publication of this report. It will be the role of the CSAS to support this programme and advise on sources of training to deliver it. (ST)

Recommendation 71 (para 6.11)
The current training for priests and religious (both in formation in the seminaries and as part of ongoing formation and study days) and other workers in the church should be expanded to include awareness of abuse of vulnerable adults – not least because they may be a very significant source of protection for those adults who are at risk. Commissions and seminaries, supported by the CSAS, will be responsible for undertaking and facilitating such training. (ST/MT)

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