Northern Ireland Assembly Flax Flower Logo

COMMITTEE OF THE CENTRE

Report into the Proposal to
Appoint A Commissioner for Children for Northern Ireland

Volume 2 - PROCEEDINGS OF THE COMMITTEE and Written Submissions Relating to the Report

Ordered by The Committee of the Centre to be printed 4 June 2001

Report: 2/00 R (Committee of the Centre)

COMMITTEE OF THE CENTRE

The Committee of the Centre is a Standing Committee established in accordance with paragraph 10 of Strand One of the Belfast Agreement and under Standing Order No. 59 of The Northern Ireland Assembly. The Terms of Reference of the Committee are to examine and report on functions carried out in the Office of the First Minister and the Deputy First Minister and on any other related matters determined by the Assembly.

The Committee has the power to send for persons and papers.

The Committee has seventeen members, including a Chairperson and Deputy Chairperson and a quorum of five members.

The current membership of the Committee, established on 15 December 1999, is as follows:

CONTENTS

Volume Two

Appendices

2. Proceedings of the Committee

3. List of Witnesses who gave evidence to the Committee

4. List of Written Submissions to the Committee

5. Written Submissions to the Committee

APPENDIX 2

PROCEEDINGS OF THE COMMITTEE

Committee of the Centre

MINUTES OF PROCEEDINGS
WEDNESDAY 7 MARCH 2001
IN ROOM 144, PARLIAMENT BUILDINGS

Present: Mr Edwin Poots MLA (Chairperson)
Mr Oliver Gibson MLA (Deputy Chairperson)
Mr Roy Beggs Jnr MLA
Dr Esmond Birnie MLA
Mr Fred Cobain MLA
Mrs Annie Courtney MLA
Mr David Ervine MLA
Ms Michelle Gildernew MLA
Ms Patricia Lewsley MLA
Mr Conor Murphy MLA
Mr Ken Robinson MLA
Mr Jim Shannon MLA

In Attendance: Mr Hugh Farren (Committee Clerk)
Ms Stella McArdle (Committee Clerk)
Mr John Conlan
Ms Laurie Roberts
Mr Tim Moore

Apologies: Mrs Eileen Bell MLA
Mr James Leslie MLA
Mr Alex Maskey MLA
Mr Eugene McMenamin MLA
Dr Alasdair McDonnell MLA

The meeting commenced at 2.07pm in public session with the Deputy Chairperson in the Chair.

Ms Gildernew joined the meeting at 2.10pm and left at 2.11pm.

Ms Lewsley joined the meeting at 2.11pm.

Ms Gildernew rejoined the meeting at 2.16pm.

The Chairperson joined the meeting at 2.17pm and took the Chair.

6. Evidence from Junior Ministers on Children's Commissioner

The evidence session started at 2.18pm. Evidence on proposals for a Children's Commissioner was taken from Mr Denis Haughey and Mr Dermot Nesbitt from the Office of the First Minister and Deputy First Minister.

Mr Shannon joined the meeting at 2.21pm.

Mrs Courtney joined the meeting at 2.24pm.

Mr Cobain joined the meeting at 2.25pm.

Mr Ervine joined the meeting at 2.48pm.

The Junior Ministers left the meeting at 3.18pm.

Work Programme: The Committee considered a work programme on the issue of a Commissioner for Children. It was agreed to refine the work programme and to consider inviting evidence from Barnardos NI, the Children's Law Centre, the NSPCC and ethnic minority groups. It was also agreed that Committee staff would explore taking evidence from organisations outside Parliament Buildings and a report should be completed by 6 June 2001.

Action: Clerk

Ms Lewsley declared an interest as Chairperson of the Cross Party Group: Commissioner for Children.

The Committee agreed the following Terms of Reference:

'To examine the proposal by the Office of the First Minister and Deputy First Minister to appoint an independent Commissioner for Children for Northern Ireland and to make recommendations on the role and remit of a Commissioner'.

[Extract]

Committee of the Centre

MINUTES OF PROCEEDINGS
WEDNESDAY 21 March 2001
ROOM 144, PARLIAMENT BUILDINGS

Present: Mr Edwin Poots MLA (Chairperson)
Mr Oliver Gibson MLA (Deputy Chairperson)
Mr Roy Beggs Jnr MLA
Dr Esmond Birnie MLA
Mr Fred Cobain MLA
Mrs Annie Courtney MLA
Mr David Ervine MLA
Ms Michelle Gildernew MLA
Ms Patricia Lewsley MLA
Mr Eugene McMenamin MLA
Mr Conor Murphy MLA
Mr Ken Robinson MLA
Mr Jim Shannon MLA

In Attendance: Mr Hugh Farren (Committee Clerk)
Ms Stella McArdle (Committee Clerk)
Mr John Conlan
Mrs Gillian Lewis
Ms Laurie Roberts

Apologies: Mrs Eileen Bell MLA
Mr James Leslie MLA
Dr Alasdair McDonnell MLA

The meeting opened at 2.03pm in closed session.

Dr Birnie joined the meeting at 2.04pm.

Mr Beggs joined the meeting at 2.05pm.

Mr Ervine joined the meeting at 2.05pm.

Ms Lewsley joined the meeting at 2.06pm

Mr Shannon joined the meeting at 2.13pm.

Ms Gildernew joined the meeting at 2.21pm.

2.24pm Public Session

Mr Cobain joined the meeting at 2.26pm.

6. Children's Commissioner Programme

Members noted the paper on the Children's Commissioner Programme.

I Evidence from Northern Ireland Human Rights Commission

The evidence session started at 2.31pm. Evidence on the impact of Human Rights issues on the role and remit of a Children's Commissioner for Northern Ireland was taken from Professor Brice Dickson, Chief Commissioner and Dr Linda Moore, Investigations Worker of the Northern Ireland Human Rights Commission. It was agreed that they would forward a written submission and additional information.

Action: Clerk

Mr Murphy joined the meeting at 2.34pm.

Mr Murphy left the meeting at 3.03pm.

Mr Ervine left the meeting at 3.16pm.

Dr Birnie left the meeting at 3.17pm.

The representatives left the meeting at 3.20pm.

Mr Shannon left the meeting at 3.22pm.

II Evidence from Equality Commission for Northern Ireland

The evidence session started at 3.21pm. Evidence on the equality issues relating to the role and remit of a Children's Commissioner for Northern Ireland was taken from Mrs Joan Harbison, Chief Commissioner, and Mr Joe Lenaghan, Head of Statutory Duty of the Equality Commission for Northern Ireland. A written submission will be sent to the Committee.

Action: Clerk

Mr Cobain left the meeting at 3.24pm.

Ms Gildernew left the meeting at 3.41pm.

Mr McMenamin left the meeting at 3.51pm.

The representatives left the meeting at 4.10pm.

The meeting was adjourned at 4.11pm.

[Extract]

COMMITTEE OF THE CENTRE

MINUTES OF PROCEEDINGS
WEDNESDAY 28 MARCH 2001
ROOM 144, PARLIAMENT BUILDINGS

Present: Mr Edwin Poots MLA (Chairperson)
Mr Roy Beggs Jnr MLA
Mrs Eileen Bell MLA
Mr Fred Cobain MLA
Mrs Annie Courtney MLA
Dr Alasdair McDonnell MLA
Mr Alex Maskey MLA Mr Conor Murphy MLA
Mr Ken Robinson MLA
Mr Jim Shannon MLA

In Attendance: Mr Hugh Farren (Committee Clerk)
Ms Stella McArdle (Committee Clerk)
Mrs Gillian Lewis
Ms Laurie Roberts

Apologies: Dr Esmond Birnie MLA
Mr David Ervine MLA
Ms Michelle Gildernew MLA
Mr James Leslie MLA
Ms Patricia Lewsley MLA
Mr Eugene McMenamin MLA

The meeting opened at 2.17pm in closed session.

2.20pm Public Session

6. Children's Commissioner for Northern Ireland Inquiry - Child Care NI

I Evidence from Save the Children, Children's Law Centre, Barnardos and Playboard

The evidence session started at 2.22pm. Evidence on the different aspects of a possible remit of a Children's Commissioner for Northern Ireland was taken from Mrs Mary Cunningham, Child Care NI, Dr Paula Rodgers, Save the Children, Ms Paddy Kelly, Children's Law Society, Ms Margaret Kelly, Barnardos and Ms Caroline Mills, Playboard.

Mr Cobain joined the meeting at 2.29pm.

Mr Robinson joined the meeting at 2.32pm.

Mrs Bell joined the meeting at 2.36pm.

Mrs Courtney joined the meeting at 2.47pm.

Mr Murphy left the meeting at 2.55pm.

Dr McDonnell joined the meeting at 2.58pm.

The representatives left the meeting at 3.18pm.

Mr Cobain left the meeting at 3.21pm.

II Evidence from Include Youth, National Deaf Children's Society, Southern Travellers Early Years Partnership and NSPCC

The evidence session started at 3.21pm. Evidence on the various aspects of the role and remit of a Children's Commissioner for Northern Ireland was taken from Ms Koulla Yiasouma, Include Youth, Ms Pauline Walker, National Deaf Children's Society, Ms Jacquie Kilfeather, Southern Travellers Early Years Partnership, and Mr Colin Reid, NSPCC.

Mrs Bell left the meeting at 4.05pm.

Mr Shannon left the meeting at 4.22pm.

Dr McDonnell left the meeting at 4.30pm.

The representatives left the meeting at 4.30pm

[Extract]

COMMITTEE OF THE CENTRE

MINUTES OF PROCEEDINGS
WEDNESDAY 4 APRIL 2001
GREAT HALL, MAGEE COLLEGE, LONDONDERRY

Present: Mr Edwin Poots MLA (Chairperson)
Mr Roy Beggs Jnr MLA
Mrs Annie Courtney MLA
Mr James Leslie MLA
Mr Eugene McMenamin MLA
Mr Conor Murphy MLA

In Attendance: Mr Hugh Farren (Committee Clerk)
Ms Stella McArdle (Committee Clerk)
Mr John Conlan
Mrs Gillian Lewis
Mr Tim Moore
Ms Laurie Roberts

Apologies: Mrs Eileen Bell MLA
Dr Esmond Birnie MLA
Mr Fred Cobain MLA
Mr David Ervine MLA
Ms Michelle Gildernew MLA
Ms Patricia Lewsley MLA
Mr Alex Maskey MLA
Dr Alasdair McDonnell MLA
Mr Ken Robinson MLA
Mr Jim Shannon MLA

The meeting opened at 2.05pm in public session.

6. Children's Commissioner for Northern Ireland Inquiry

I Evidence from Western Young People's Steering Group

The evidence session started at 2.09pm. Evidence on young people's perspectives and views on the role and remit of a Children's Commissioner for Northern Ireland was taken from Mr Mal Caldwell, Miss Nicola Clifford, Mr Michael Harrigan, Miss Helena McAuley, Miss Emma McCaffrey, Miss Fiona Mullin, Miss Geraldine Murphy, Miss Wendy O'Shea, Miss Nicola Rodgers, Miss Eileen Welch, and Ms Stieneke Willis from the Western Young People's Steering Group.

Mr Beggs joined the meeting at 2.23pm.

The representatives left the meeting at 3.14pm.

II Evidence from Derry Children's Commission

The evidence session started at 3.15pm. Evidence on the different aspects of a possible role and remit of a Children's Commissioner for Northern Ireland was taken from Mr John Meehan, Chairperson, Ms Carmel Mulrine, Co-ordinator, Ms Ann Elliott, Ms Goretti Horgan and Mr Eamon McTernan, members from the Derry Children's Commissioner.

The representatives left the meeting at 4.03pm.

[Extract]

COMMITTEE OF THE CENTRE

MINUTES OF PROCEEDINGS
WEDNESDAY 25 APRIL 2001
ROOM 144, PARLIAMENT BUILDINGS

Present: Mr Edwin Poots MLA (Chairperson)
Mr Oliver Gibson MLA (Deputy Chairperson)
Mr Roy Beggs Jnr MLA
Mrs Eileen Bell MLA
Dr Esmond Birnie MLA
Ms Michelle Gildernew MLA
Ms Patricia Lewsley MLA
Mr Eugene McMenamin MLA
Mr Ken Robinson MLA
Mr Jim Shannon MLA

In Attendance: Mr Hugh Farren (Committee Clerk)
Ms Stella McArdle (Committee Clerk)
Mr John Conlan
Mrs Gillian Lewis
Ms Laurie Roberts

Apologies: Mr Fred Cobain MLA
Mrs Annie Courtney MLA
Mr David Ervine MLA
Mr James Leslie MLA
Dr Alasdair McDonnell MLA

The meeting opened at 2.06pm in public session with the Deputy Chairperson in the Chair.

Mr Robinson joined the meeting at 2.09pm.

7. Children's Commissioner for Northern Ireland Inquiry

I Evidence from the Northern Ireland Branch of the British Association of Social Workers (BASW (NI))

The evidence session started at 2.22pm. Evidence on the various aspects of the role and remit of a Children's Commissioner for Northern Ireland was taken from Ms Alyson Dunn, Chairperson, Ms Helen Eagleson, Member, and Ms Liz Millen, Member of BASW (NI).

Dr Birnie left the meeting at 2.40pm.

Mr Poots joined the meeting at 2.45pm and took the Chair.

Mr Shannon joined the meeting at 2.46pm.

Ms Gildernew joined the meeting at 3.07pm.

The representatives left the meeting at 3.13pm.

Mr Robinson left the meeting at 3.13pm.

Mr McMenamin left the meeting at 3.14pm.

II Evidence from the Northern Ireland Guardian Ad Litem Agency (NIGALA) and The Law Society of Northern Ireland

The evidence session started at 3.14pm. Evidence on the legal issues and the different aspects of a possible role and remit of a Children's Commissioner for Northern Ireland was taken from Ms Mary Connolly, Chairperson, Mr Ronnie Williamson, Executive Director, and Mr Stephen Knox, Member of the NIGALA and Ms Catherine Dixon and Mr John Meehan of The Law Society of Northern Ireland.

The representatives left the meeting at 4.11pm.

[Extract]

COMMITTEE OF THE CENTRE

MINUTES OF PROCEEDINGS
WEDNESDAY 2 MAY 2001
ROOM 144, PARLIAMENT BUILDINGS

Present: Mr Edwin Poots MLA (Chairperson)
Mr Oliver Gibson MLA (Deputy Chairperson)
Mr Roy Beggs Jnr MLA
Mrs Eileen Bell MLA
Dr Esmond Birnie MLA
Mrs Annie Courtney MLA
Ms Michelle Gildernew MLA
Ms Patricia Lewsley MLA
Dr Alasdair McDonnell MLA
Mr Eugene McMenamin MLA
Mr Ken Robinson MLA
Mr Jim Shannon MLA

In Attendance: Mr Hugh Farren (Committee Clerk)
Ms Stella McArdle (Committee Clerk)
Mr John Conlan
Mrs Gillian Lewis
Ms Laurie Roberts

Apologies: Mr James Leslie MLA

The meeting opened at 2.02pm in public session.

Mr Robinson joined the meeting at 2.09pm.

Ms Gildernew joined the meeting at 2.16pm.

6. Children's Commissioner for Northern Ireland Inquiry

I Evidence from Child Care NI, First Key, NI Foster Care Association and NIACRO

The evidence session started at 2.17pm. Evidence on the various aspects of the role and remit of a Children's Commissioner for Northern Ireland was taken from Mrs Mary Cunningham, Child Care NI, Dr John Pinkerton and Mr Ross McCrea, First Key, Mrs Kate Lewis, NI Foster Care Association and Mrs Olwen Lyner, NIACRO. It was agreed that First Key would forward additional information.

Action: Clerk

Mr Shannon joined the meeting at 2.34pm.

Dr McDonnell joined the meeting at 2.44pm.

Ms Gildernew left the meeting at 2.51pm.

Dr Birnie left the meeting at 3.01pm.

Mr McMenamin left the meeting at 3.05pm.

Dr McDonnell left the meeting at 3.23pm.

The representatives left the meeting at 3.30pm.

II Evidence from Child Care NI, EXTERN, Parents Advice Centre, Gingerbread and VOYPIC

The evidence session started at 3.31pm. Evidence on the various aspects of the role and remit of a Children's Commissioner for Northern Ireland was taken from Mrs Mary Cunningham, Child Care NI, Ms Gemma Donnelly, EXTERN, Mrs Pip Jaffa, OBE, Parents Advice Centre, Ms Marie Cavanagh, Gingerbread and Ms Kelly Collins, VOYPIC.

Mrs Courtney left the meeting at 3.39pm.

Ms Lewsley left the meeting at 3.44pm.

Mrs Bell left the meeting at 4.09pm.

The representatives left the meeting at 4.37pm.

[Extract]

COMMITTEE OF THE CENTRE

MINUTES OF PROCEEDINGS
WEDNESDAY 9 MAY 2001
SENATE CHAMBER, PARLIAMENT BUILDINGS

Present: Mr Edwin Poots MLA (Chairperson)
Mr Oliver Gibson MLA (Deputy Chairperson)
Mr Roy Beggs Jnr MLA
Mrs Annie Courtney MLA
Mr David Ervine MLA
Mr Alex Maskey MLA
Dr Alasdair McDonnell MLA
Mr Eugene McMenamin MLA
Mr Ken Robinson MLA
Mr Jim Shannon MLA

In Attendance: Mr Hugh Farren (Committee Clerk)
Ms Stella McArdle (Committee Clerk)
Mr John Conlan
Mrs Gillian Lewis
Ms Laurie Roberts

Apologies: Mrs Eileen Bell MLA
Dr Esmond Birnie MLA
Ms Michelle Gildernew MLA
Mr James Leslie MLA
Ms Patricia Lewsley MLA
Mr Conor Murphy MLA

The meeting opened at 2.05pm in public session.

Mr Robinson joined the meeting at 2.14pm.

6. Children's Commissioner for Northern Ireland Inquiry

I Evidence from a Welsh Assembly Member

The evidence session started at 2.15pm. Evidence on the experience of a dedicated Children's Commissioner in Wales was taken from Ms Kirsty Williams AM, Chairperson of the Welsh Health Committee and Ms Jane Westlake, Committee Clerk.

Mr Shannon joined the meeting at 2.25pm.

Mr Ervine left the meeting at 2.37pm.

Dr McDonnell joined the meeting at 2.56pm.

Mr Robinson left the meeting at 3.04pm.

The representatives left the meeting at 3.18pm.

Dr McDonnell left the meeting at 3.18pm.

II Evidence from the Northern Ireland Assembly Ombudsman

The evidence session started at 3.19pm. Evidence on the relationship between the role of the Assembly Ombusdman for Northern Ireland and the proposed Children's Commissioner for Northern Ireland was taken from Mr Tom Frawley, Assembly Ombudsman and Mr John McQuarrie, Deputy Ombudsman.

Mr Gibson left the meeting at 3.34pm.

Mr Shannon left the meeting at 3.46pm.

Dr McDonnell rejoined the meeting at 3.57pm.

The representatives left the meeting at 4.00pm.

The meeting was adjourned at 4.01pm.

[Extract]

COMMITTEE OF THE CENTRE

MINUTES OF PROCEEDINGS
Friday 11 May 2001
Senate Chamber, parliament buildings

Present: Mr Edwin Poots MLA (Chairperson)
Mr Roy Beggs Jnr MLA
Mrs Annie Courtney MLA
Mr Alex Maskey MLA
Mr Ken Robinson MLA
Mr Jim Shannon MLA

In Attendance: Mr Hugh Farren (Committee Clerk)
Ms Stella McArdle (Committee Clerk)
Mr John Conlan
Mrs Gillian Lewis
Ms Laurie Roberts

Apologies: Mrs Eileen Bell MLA
Dr Esmond Birnie MLA
Mr Fred Cobain MLA
Mr David Ervine MLA
Mr Oliver Gibson MLA
Mr James Leslie MLA
Ms Patricia Lewsley MLA
Dr Alasdair McDonnell MLA
Mr Eugene McMenamin MLA
Mr Conor Murphy MLA

The meeting opened at 10.45am in public session.

4. Children's Commissioner for Northern Ireland Inquiry

Evidence from the Norwegian Ombudsman for Children

The evidence session started at 10.47am. The Chairperson welcomed and introduced Mr Trond Waage to the Committee. Evidence was taken on the role, remit and experience of Mr Trond Waage, the Norwegian Ombudsman for Children.

Mr Maskey joined the meeting at 10.51am.

Mrs Courtney left the meeting at 11.40am.

Mr Waage left the meeting at 12.17pm.

The meeting was adjourned at 12.18pm.

[Extract]

COMMITTEE OF THE CENTRE

MINUTES OF PROCEEDINGS
WEDNESDAY 23 MAY 2001
ROOM 144, PARLIAMENT BUILDINGS

Present: Mr Edwin Poots MLA (Chairperson)
Mr Oliver Gibson MLA (Deputy Chairperson)
Mr Roy Beggs Jnr MLA
Mrs Eileen Bell MLA
Ms Patricia Lewsley MLA
Mr Alex Maskey MLA
Mr Jim Shannon MLA

In Attendance: Mr Hugh Farren (Committee Clerk)
Ms Stella McArdle (Committee Clerk)
Mr John Conlan
Mrs Gillian Lewis
Ms Laurie Roberts
Mr Tim Moore

Apologies: Dr Esmond Birnie MLA
Mr Fred Cobain MLA
Mrs Annie Courtney MLA
Mr James Leslie MLA
Mr Eugene McMenamin MLA
Mr Ken Robinson MLA

The meeting opened at 2.08 pm in public session.

2.51pm Closed Session

7. Committee's Consideration of the Draft Report on the Children's Commissioner Inquiry

The draft report was considered for the first time.

The overall format of the report and Contents were agreed.

It was agreed that the Committee's recommendations will be set out at the beginning of the report.

Section 1 - was agreed in principle.
Section 2 - was agreed in principle.
Section 3 - will be edited and considered further.
Section 4 - the final paragraph of 4.2.1 was agreed.
Section 4 - the final paragraph of 4.2.2 was agreed.
Section 4 - the two recommendations relating to paragraph 4.3.1 were agreed and a further recommendation will be drafted.

Mr Gibson left the meeting at 3.25pm.

Section 4 - the three recommendations relating to paragraph 4.3.2 were agreed.
Section 4 - the first recommendation relating to paragraph 4.3.3 was agreed subject to minor amendments and the next two recommendations were also agreed.
Section 4 - the two recommendations relating to paragraph 4.3.4 were agreed and a further recommendation will be drafted.
Section 4 - the first recommendation relating to paragraph 4.3.5 was agreed subject to a minor amendment, the second recommendation was also agreed and the third recommendation will be re-drafted.

Mr Shannon left the meeting at 3.53pm.

Section 4 - the three recommendations relating to paragraph 4.4.1 will be re-drafted.
Section 4 - the two recommendations relating to paragraph 4.4.2 were agreed.
Section 4 - the two recommendations relating to paragraph 4.4.3 were agreed subject to minor amendments.

The meeting was adjourned at 4.03pm.

[Extract]

COMMITTEE OF THE CENTRE

MINUTES OF PROCEEDINGS
TUESDAY 29 MAY 2001
ROOM 144, PARLIAMENT BUILDINGS

Present: Mr Oliver Gibson MLA (Deputy Chairperson)
Mr Roy Beggs Jnr MLA
Mrs Eileen Bell MLA
Mrs Annie Courtney MLA
Mr Alex Maskey MLA
Dr Alasdair McDonnell MLA
Mr Ken Robinson MLA

In Attendance: Mr Hugh Farren (Committee Clerk)
Mr John Conlan
Mrs Gillian Lewis
Ms Laurie Roberts
Mr Tim Moore

Apologies: Mr Edwin Poots MLA (Chairperson)
Dr Esmond Birnie MLA
Mr Fred Cobain MLA
Mr David Ervine MLA
Ms Michelle Gildernew MLA
Mr James Leslie MLA
Ms Patricia Lewsley MLA
Mr Eugene McMenamin MLA
Mr Conor Murphy MLA
Mr Jim Shannon MLA

The meeting opened at 11.38am in public session - Mr Gibson in the Chair.

Dr McDonnell joined the meeting at 11.45am.

11.46am Closed Session

7. Committee's Continued Consideration of the Draft Report on the Children's Commissioner Inquiry

The Committee continued its deliberations on Section 4 of the draft report.

Mrs Bell joined the meeting at 11.50pm.

Section 4 - the two recommendations relating to paragraph 4.5.1 were agreed.

Section 4 - the recommendation relating to paragraph 4.5.2 was agreed.

Section 4 - the two recommendations relating to paragraph 4.5.3 were agreed.

Section 4 - the recommendation relating to paragraph 4.6.1 was agreed.

Section 4 - the recommendation relating to paragraph 4.6.2 was agreed.

Section 4 - the recommendation relating to paragraph 4.6.3 was agreed subject to a minor amendment.

Section 4 - the first and third recommendations relating to paragraph 4.7.1 were agreed and the second
recommendation was agreed subject to minor amendments.

Section 4 - the two recommendations relating to paragraph 4.7.2 will be re-drafted.

Section 4 - the recommendation relating to paragraph 4.7.4 was agreed subject to minor amendment.

The Committee reconsidered the edited version of Section 3.

Mr Maskey left the meeting at 12.15pm.

Section 3 - paragraphs 3.1.1 to 3.1.15 were agreed.

Section 3 - paragraphs 3.2.1 to 3.2.46 were agreed.

Section 3 - paragraphs 3.3.1 to 3.3.20 were agreed.

Section 3 - paragraphs 3.4.1 to 3.4.17 were agreed subject to minor amendments.

Section 3 - paragraphs 3.5.1 to 3.5.16 were agreed.

Section 3 - paragraphs 3.6.1 to 3.6.23 were agreed.

The meeting was adjourned at 12.26pm.

[Extract]

COMMITTEE OF THE CENTRE

MINUTES OF PROCEEDINGS
MONDAY 4 JUNE 2001
ROOM 144, PARLIAMENT BUILDINGS

Present: Mr Edwin Poots MLA (Chairperson)
Mr Oliver Gibson MLA (Deputy Chairperson)
Mr Roy Beggs Jnr MLA
Mrs Eileen Bell MLA
Dr Esmond Birnie MLA
Mrs Annie Courtney MLA
Mr James Leslie MLA
Ms Patricia Lewsley MLA
Mr Alex Maskey MLA
Mr Conor Murphy MLA

In Attendance: Mr Hugh Farren (Committee Clerk)
Ms Stella McArdle (Committee Clerk)
Mr John Conlan
Ms Laurie Roberts

Apologies: Mr David Ervine MLA
Ms Michelle Gildernew MLA
Mr Eugene McMenamin MLA
Mr Ken Robinson MLA
Mr Jim Shannon MLA

The meeting opened at 11.34am in public session.

Mr Maskey and Mr Murphy joined the meeting at 11.36am.

11.40am - Closed Session

5. Draft Report on the Children's Commissioner Inquiry

The Committee deliberated.

The second draft report incorporating changes ordered by Members at their meetings on 23 May 2001 and 29 May 2001 was considered section by section.

Section 1 - agreement was confirmed.

Section 2 - agreement was confirmed.

Section 3 - agreement was confirmed.

Section 4 - paragraphs 4.1 to 4.2.6 agreement was confirmed.

Mrs Bell joined the meeting at 11.42am.

Section 4 - paragraphs 4.3.1 to 4.3.28 were agreed with minor amendments.

Section 4 - paragraphs 4.4.1 to 4.4.14 were agreed with minor amendments.

Mrs Courtney joined the meeting at 11.58am.

Section 4 - paragraphs 4.5.1 to 4.5.9 agreement was confirmed.

Mrs Courtney left the meeting at 12.01pm.

Mrs Courtney rejoined the meeting at 12.04pm.

Mr Gibson left the meeting at 12.05pm.

Section 4 - paragraphs 4.6.1 to 4.6.8 were agreed with minor amendments.

Dr Birnie left the meeting at 12.20pm.

Dr Birnie rejoined the meeting at 12.22pm.

Section 4 - paragraphs 4.7.1 to 4.7.11 were agreed with minor amendments.

Section 5 - paragraphs 5.1 to 5.5 were agreed.

Order Report to be printed.

Ms Lewsley proposed that the Report be printed. This was seconded by Mrs Bell.

Mr Murphy left the meeting at 12.25pm.

6. Draft Motion

The Committee agreed the following Motion:

"That this Assembly approves the Report of the Committee of the Centre on their inquiry into the proposal for a Commissioner for Children for Northern Ireland and calls on the First Minister and Deputy First Minister to take full account of the recommendations."

Action: Clerk

Mr Maskey left the meeting at 12.27pm.

7. Any other business

Members agreed that the Report recommendations should be copied to the Education Committee, the Health, Social Services & Public Safety Committee, and the Higher & Further Education, Training & Employment Committee for their comments. It was also agreed that the Chairperson will decide if any further amendments to the Report are necessary.

Action: Clerk

The Chairperson concluded the meeting at 12.28pm by thanking Members and staff for their assistance in enabling the Report to be completed on time.

[Extract]

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APPENDIX 3

LIST OF WITNESSES

Professor Brice Dickson, Chief Commissioner

Dr Linda Moore, Investigations Worker

Mrs Joan Harbison, Chief Commissioner

Mr Joe Lenaghan, Director of Statutory Duty

Mrs Mary Cunningham, Co-ordinator

Dr Paula Rodgers, Save the Children

Ms Paddy Kelly, Children's Law Centre

Ms Margaret Kelly, Barnardos

Ms Caroline Mills, Play Board

Ms Koulla Yiasouma, Include Youth

Ms Pauline Walker, National Deaf Children's Society

Ms Jacquie Kilfeather, Southern Travellers Early Years Partnership

Mr Colin Reid, NSPCC

Ms Kelly Collins, VOYPIC

Mr M Caldwell

Miss E McCaffrey

Miss N Rodgers

Miss N Clifford

Miss F Mullin

Miss E Welch

Mr M Harrigan

Miss G Murphy

Ms S Willis

Miss H McAuley

Miss W O'Shea

 

Ms Carmel Mulrine, Co-ordinator

Mr John Meehan, Chair

Ms Ann Elliott, Member

Mr Eamon McTernan, Member

Ms Alyson Dunn, Chairperson

Ms Helen Eagleson, Member

Ms Liz Millen, Member

Mr Ronnie Williamson, Executive Director

Mr Stephen Knox, Member

Ms Catherine Dixon, Member

Mr John Meehan, Member

Mrs Mary Cunningham, Co-ordinator

Dr John Pinkerton, First Key Northern Ireland

Mr Ross McCrea, First Key Northern Ireland

Mrs Kate Lewis, Northern Ireland Foster Care Association (NIFCA)

Ms Olwen Lyner, Northern Ireland Association for the Care and Resettlement of

Offenders (NIACRO)

Ms Gemma Donnelly, EXTERN

Mrs Pip Jaffa OBE, Parents Advice Centre

Ms Marie Cavanagh, Gingerbread Northern Ireland

Ms Kirsty Williams AM, Chairperson of the Health and Social Services Committee

Mr Tom Frawley, Assembly Ombudsman

Mr Trond Waage, The Ombudsman for Children

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APPENDIX 4

LIST OF WRITTEN SUBMISSIONS TO THE COMMITTEE

CARE (Christian Action Research and Education)

Committee on Procedures

Derry Children's Commission

Education Committee

Enterprise, Trade and Investment Committee

Environment Committee

Equality Commission for Northern Ireland

EXTERN

First Key (Northern Ireland)

Gingerbread Northern Ireland

Groups Co-ordinated by Child Care Northern Ireland

Health, Social Services and Public Safety (HSSPS) Committee

Higher and Further Education, Training and Employment Committee

Northern Ireland Association for the Care and Resettlement of Offenders (NIACRO)

Northern Ireland Foster Care Association (NIFCA)

Northern Ireland Guardian Ad Litem Agency

Northern Ireland Human Rights Commission

Parents Advice Centre Northern Ireland

Regional Development Committee

The Assembly Ombudsman for Northern Ireland

The Health and Social Services Committee of the National Assembly for Wales

The Law Society of Northern Ireland

The Northern Ireland Branch of the British Association of Social Workers (BASW (NI))

The Western Area Children and Young People's Committee

Western Young People's Steering Group

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APPENDIX 5

WRITTEN SUBMISSIONS TO THE COMMITTEE

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
CARE (CHRISTIAN ACTION RESEARCH AND EDUCATION)

Introduction

CARE welcomed the announcement made by the First Minister and Deputy First Minister on 29th January 2001 regarding their plans to appoint a Children's Commissioner for Northern Ireland. We look forward to making a positive contribution to the fuller consultation process in due course.

CARE is pleased to make a submission to the Committee of the Centre. This paper will consider the following aspects in more detail:-

1. The Important Role of Children's Commissioner.

2. Potential Weaknesses of the Role.

3. Potential Strengths of the Role.

4. A Positive Vision of Well-being.

5. The Children's Commissioner and the Family.

6. Recommendations for the Appointment Criteria.

1. The Important Role of the Children's Commissioner

a. In recent years CARE, along with society at large, has been distressed to hear of increasing cases of child abuse meted out on vulnerable children in receipt of services from the state in the form of children's homes, schools, etc.

b. The First Minister and Deputy First Minister told the Assembly in October 2000 that they were determined to ensure that "our arrangements for upholding children's rights were based upon best practice". There is no doubt that the impetus for appointing a Children's Commissioner in Wales was stirred largely by the uncovering of the child abuse scandal in North Wales.

c. Although the circumstances, and therefore concerns, are slightly different here, we too must not be complacent about securing the best and safest environment in which this generation of children, and those to come, will develop and mature.

d. Given this premise we certainly welcome the creation of an officer whose job it is to monitor the provision of services to children to ensure that they are protected and abusers exposed. The provision of a Commissioner for Children is a common sense approach and CARE applauds it as such.

2. Potential Weaknesses of the role of the Children's Commissioner

a. Our purpose in highlighting the potential weaknesses in defining this role is not to be unduly negative but to offer some caution. We list the potential problems in this section, and make our suggestions as to the solutions in the next.

b. The impact and effectiveness of the Children's Commissioner will be severely limited if:-

3. Potential Strengths of the role of the Children's Commissioner

a. Of course all these potential weaknesses can be reversed and viewed as potential strengths that make the role of Children's Commissioner effective and truly worthwhile.

b. The role of the Commissioner must be closely defined. Whilst it is a crucial step to appoint a Children's Commissioner, it must also be acknowledged that the appointment of one person will not bring about the kind of structural changes to children's services required in Northern Ireland. It is imperative that the role be clearly defined so that priorities can be established. As one victim of the North Wales Children's Home abuse recently commented, it is difficult to see how one office will be able to effectively monitor every children's home. The Western Mail reported 'Victim Steve Meesham questions whether a single commissioner will be able to tackle entrenched culture of abuse that might arise again in the care system'.

c. Priorities must be established for the Children's Commissioner. The Children's Commissioner's primary objective must be to protect children. This would be achieved through an obligation to monitor state services to children. It would be tragic if the Commissioner's ability to protect children from abuse was compromised by demands that he should spend his time empowering children generally.

d. It is vital that a holistic approach to a strategy for children be adopted. We must adopt a two-pronged approach of providing a children's commissioner whose remit is clearly defined as being protective. But we must also ensure that the interests of Northern Irish children be broadly conceived. Their best interests are not being wholly catered for by the absence of abuse and pain, but of the presence of wellbeing.

4. A Positive Vision of Wellbeing

a. The social science evidence is very clear about two facts.

b. In the first instance healthy child development depends primarily on a healthy family environment.

c. In the second instance, the family unit in Northern Ireland - in common with many other developed countries, is in a state of breakdown, the effects of which will inevitably impact on children in a negative way.

d. It is vital that the holistic approach to a children's strategy begins from the grass-roots. This involves strengthening family life in Northern Ireland.

e. The Commissioner is one office, and is not omnipresent. The family, however, exists across the whole of Northern Ireland. Within the prosperity (emotionally, relationally, and culturally) of family life lies the prosperity of our children.

f. CARE does not deny or wish to overlook the fact that some families are dangerous places to be. However, the statistics demonstrate conclusively that a healthy family is by far the best context for child development.

g. CARE believes that it would be extremely beneficial if time were apportioned to considering what has gone wrong with the family in Northern Ireland, and more importantly, what can be done through government and community initiatives to enable and support parents. The ground has been prepared on a UK level by the consideration of the family by the Lords and Commons Child Protection Group which published a report called Family Matters in 1998, and in the Irish Government's document The National Children's Strategy: Our Children, Their Lives, November 2000.

h. CARE also believes it is important to highlight the excellent work being done through initiatives that work outside of the home such as Sure Start. These initiatives have an important part to play in an emerging understanding of positive child development.

5. The Children's Commissioner and the Family

a. A Reportfrom the European Children Network expresses the concerns of the children's rights lobby well:

Children are socially and politically excluded from most national and European institutions. They cannot vote. They have little or no access to the media. They have only limited access to the courts. They are not members of powerful lobbies which campaign and lobby governments such as the trade unions, the commercial sector or environmental groups. Without access to these processes which are integral to the exercise of democratic rights, children and their experience remain hidden from view and they are, in consequence, denied effective recognition as citizens.

b. However, it must be acknowledged that giving children political agency is not the key to their wellbeing. The wellbeing and development of children into maturity depends on nurture, which is the domain of the parents and the family unit. It is a profoundly social and relational phenomenon that helps children discover who they are.

c. Parental input - including where necessary discipline - is not something that conspires against the child's freedom, but is rather a loving impartation of identity from an authority figure that helps children find themselves and thus sets them free. It produces a child that can be envisioned, nurtures desire and expresses the will. It produces an understanding within a child that is a basic presumption of the child's later being able to choose freely. The danger with the above is that in granting children a measure of political agency it authenticates children as complete before they are complete. It rips them out of their rootedness in their defining environment that allows them to fulfil their destiny and potential.

d. It must be recognised and officially acknowledged that children's wellbeing will not be located in the ability of the Commissioner to raise awareness of children's rights and represent their views without reference to the family.

e. The role of the proposed Commissioner must be located in the light of the importance of the family unit. There must be serious consideration of the relationship between the Commissioner and the family unit, and this must be contextualised within the protective function of parental responsibility.

f. We would not want to suggest that the involvement of the Commissioner in addressing children's issues within the home was necessarily problematic. The state already has the power to intervene in family life through social services to protect children from abuse.

g. However, we would be concerned if the Commissioner's role were to include proactively giving children a form of political agency in a manner that would undermine parental authority. The solution is not to undermine the family by opening it up so that children can second guess their parents by appealing to 'their representative'. It is rather to seek to help strengthen the family unit itself.

h. We commend to you the Irish Government's National Children's Strategy. The document sets out their values which holds that children:

6. Recommendations for the Appointment Criteria

The appointee should:

ALISON LAIRD
Assembly Officer, CARE for Northern Ireland

May 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
DERRY CHILDREN'S COMMISSION

Although Derry Children's Commission was formally constituted in September 1999 and the office opened in September 2000 the process which helped establish this initiative grew organically out of the work and energy of a group of parents from the area who with professionals from a range of agencies and through consultation in the community championed and fought for a project which would be interagency and would include parents. Areas of concern included:

Therefore the project aims to develop an infrastructure whereby children can contribute to the decision making processes of the agencies operating in the Derry City Council area; build the infra-structure for consultation with parents/carers; support agencies and extend their infrastructure to engage children in their decision making processes; and contribute to child proofing of all local plans and policies.

We are currently attempting to raise our profile among agencies; parents/carers in the city in order to lobby effectively on behalf of children and at the same time give children a voice in our communities and city. One of our current activities is the development of a programme with primary schools which will contribute to a programme which can be used in the nursery and community playgroup sector as well as with the Parent and Toddler groups operating in the community. This will help articulate the views and concerns of children and thereby help set further the agenda for our work.

A second activity is to develop a programme called 'Parents as Partners' and our parent advisors have made the following suggestions to the Derry Children's Commission re their involvement:

We therefore welcome the recognition by the Assembly that children need an independent and powerful voice to promote and protect their rights and interests in NI. This will strengthen the work we are doing. Children are more affected by the actions or inaction of Government than any other group. Education policies dominate their waking hours and public health policies target their developing bodies and life styles. Yet they have no vote and little influence in the institutions that govern their lives and their developmental state makes them especially vulnerable both to ill treatment by those more powerful than themselves and to the conditions under which they live.

The Role and Function of the Office of Children's Commissioner

The Office should meet international standards for human rights institutions, enabling them to legally and publicly, monitor, review and report on any matter affecting the rights and welfare of children in NI.

The primary role and functions of a Children's Commission should be:

In fulfilling these roles and functions, the Commissioner should take into account those views, opinions and direct experiences of children and young people. They will, therefore, maintain direct contact with children and children's organizations, paying particular regard to the views of children and young people and to promoting respect for the views of children throughout society.

The process of consultation for creating a Children's Commissioner must involve children and young people; it must also include parents, teachers and a wide range of professionals who work with children.

The remit of the Children's Commissioner must permeate all government departments as a wide range of policy decisions at departmental level affects children whether it is Health and Social Services, the Environment, Education, Agriculture or Rural Development.

The Commissioner must be free from party politics, able to criticize and lobby the Assembly for change where necessary.

The office of the Children's Commissioner must be independent and visible.

CARMEL MULRINE
Co-ordinator

18 April 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
EDUCATION COMMITTEE

Purpose

Introduction

The Education Committee welcomes the proposal to appoint an independent Commissioner for Children in Northern Ireland. At present children in Northern Ireland do not have a powerful voice or an advocate within Government structures and this gap needs to be addressed.

The appointment of a Commissioner should be part of a strategy to address children's rights and needs and should assist in a more "joined-up" approach and focus.

Background

The United Nations Convention on the Rights of the Child (UNCRC) provides a framework for the creation of a Children's Commissioner post and applies to all people under 18 years. Other relevant legislation includes the Children (Northern Ireland) Order 1995 which states that "the welfare of the child must be the paramount consideration".

The Order places duties on a number of agencies, including Education and Library Boards, acting on behalf of children in need or enquiring into allegations of child abuse.

General Comments

It will be necessary for any appointed Commissioner:

The Committee would suggest that the Commissioner's responsibilities should include:

Educational Issues relating to the remit of a Children's Commissioner

We would strongly advocate that the remit of the Children's Commissioner should not just centre on children in care or be for abused or deprived children. The Commissioner must have a broad mandate.

Specific educational areas in which a Children's Commissioner could monitor or investigate are as follows:

1. Special Educational Needs

Issues relating to Special Education Needs including the availability of external services such as educational psychologists, peripatetic and outreach teachers and speech therapists.

It is acknowledged that the provision of such services in Northern Ireland can be "patchy" and varied across Education and Library Boards. There is also a difficulty with the availability and co-ordination of provision with the Health Trusts and the members of this Committee have received numerous representations from frustrated and disappointed parents regarding these issues. Part of the Commissioner's remit could be to ensure that pupils across Northern Ireland with special education needs receive equal and appropriate service.

There is also a lack of consistency regarding the preferred means of teaching children with special educational needs with some being provided in-class support and others being withdrawn from the classroom. The Commissioner could monitor and advise on the integration of children with special educational needs into mainstream education.

2. Children in Care

The Health, Social Services and Public Safety Committee's inquiry into Residential and Secure Accommodation for Children in Northern Ireland, to which this Committee contributed, highlighted the very poor educational outcomes for children in residential care with some 50% leaving with no qualifications. That inquiry also heard evidence of the growing numbers of looked-after children suspended, excluded or experiencing school-related difficulties. It recommended the establishment of a joint working group representing the Health Department, the Northern Ireland Office, the Health and Social Services Trusts, the Education and Library Boards and the voluntary sector to formulate an agreed protocol regarding the education of young people in care, including those within the juvenile justice system. The Commissioner's remit could include the supervision of such a protocol and its implementation.

3. Sick Children and Education

The Commissioner's responsibilities could include advising on best practice regarding the education of sick children and investigating areas where the service falls short.

The charity 'Present' (formerly the National Association for the Education of Sick Children) campaigns for improved educational standards and provision for sick children. It states that sick children in the United Kingdom who receive tuition in hospitals or at home every year risk missing important parts of the curriculum, are unable to prepare for exams and lose or do not acquire the skills needed for the future. A 1997 Education and Training Inspectorate report into the South Eastern Education and Library Board's peripatetic service described the Hospital and Home Teaching Service as generally good but limited by a number of factors including lack of training for teachers, lack of monitoring and evaluation of teachers and lack of information on individual pupils.

4. Children with Disabilities

Although the provision of education is excluded from many of the requirements of the Disability Discrimination Act (1996) there is a consensus that schools should adapt best practice in accessibility.

It would be appropriate for the Commissioner to monitor the accessibility of school buildings, transport and services and to promote best practice to ensure that children with disabilities are able to participate as fully as possible in mainstream education including extra-curricular activities.

5. Bullying

There is anecdotal evidence that bullying is widespread in schools with resultant emotional distress and/or physical injuries which can prejudice individual achievement, lead to lateness or absenteeism and, in extreme cases, end with attempted suicide. The Commissioner could monitor discipline and behaviour policies in schools and advise on best practice.

6. Child Safety

Under the UNCRC, governments have a responsibility to protect children from mental and physical violence, injury and abuse, and exploitation. The Commissioner could advise and collaborate on the dissemination of information on child safety to pupils, including road safety education, the implications of carrying heavy school bags, drug and sex education and school transport safety issues.

7. Provision of Cultural Education

The Commissioner could monitor the provision of cultural, linguistic and religious education in schools to ensure respect of children's right to freedom of thought, conscience and religion and their right to their own culture and language under the UNCRC.

8. Teacher Training

The Commissioner should contribute to the initial teacher-training syllabus and to in-service training on the subject of children's rights to ensure that teachers are fully aware of the implications of the UNCRC and relevant legislation.

Areas of Inter-Departmental Co-ordination

The Commissioner's remit could also include monitoring areas which require inter-departmental or inter-agency co-ordination such as:

Education and Health

Education and Culture, Arts and Leisure

Education and Further and Higher Education, Training and Employment

Conclusion

The Education Committee welcomes the proposal to appoint a Commissioner for Children in Northern Ireland. In taking this forward we believe that the Commissioner must be independent and have a broad mandate. The remit, responsibilities and powers of the Commissioner must be clearly defined and avoid any overlap and sufficient resources need to be allocated. We have also indicated a number of educational issues that we believe should fall within the remit of a Commissioner for Children.

CHRISTINE DARRAH
Committee Clerk

23 May 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
ENTERPRISE, TRADE AND INVESTMENT COMMITTEE

The Enterprise, Trade and Investment Committee have considered the terms of reference for this Inquiry and do not wish to make any comments at this time.

The Committee look forward to hearing the outcome of your Committee's Inquiry.

CATHIE WHITE
Committee Clerk

5 April 2001

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
ENVIRONMENT COMMITTEE

The Environment Committee was informed of the content of your letter on 29th March 2001 and it was agreed that the Committee would not provide input at this stage. However, should you consider it necessary to have the Committee's views on issues which emerge from your Committee's deliberations affecting DoE matters, please do not hesitate to contact me and I will raise them with the Committee.

JOHN SIMMONS
Committee Clerk

30 March 2001

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
EQUALITY COMMISSION FOR NORTHERN IRELAND

There is plenty of evidence from research in Northern Ireland, not least the recent Gulbenkian Foundation Inquiry into Effective Government Structures for children in 1998 to support the need for a Children's Commissioner. That report, which included Northern Ireland, concluded that government structures are failing children. It recommends:

Children justify special structures, because their healthy development and active participation are crucial to a healthy future society.

Children have equal status to adults.

Children are more vulnerable.

Children are more affected by Government activity/inactivity.

Children are politically disenfranchised.

Social changes - family/employment/market forces are impacting on children more significantly.

Financial/social costs of failure on child development are high.

On 29 January 2001, the Assembly approved the proposal to establish a Commissioner for Children. The move has been welcomed by leading voluntary and community sector organisations, which have led the campaign (Barnardos, Save the Children Fund, Children Law Centre, Children's Express, Putting Children First).

Children's rights

Campaigners have promoted the aims of the Office of the Children's Commissioner to: -

"place all children on the political agenda to ensure a joined up approach to children's issues within the Assembly and government departments."

The creation of an independent Children's Commissioner in Northern Ireland with full statutory powers and authority to investigate breaches of children's rights and ensure the implementation of the UN Convention on the Rights of the Child.

Legislation

The main piece of legislation establishing and protecting the rights of children is the UN Convention on the Rights of the Child, but this is considered not to be an effective framework for action.

Equality Legislation

Young people in employment, and as users of facilities, enjoy equal protection under sex, equal pay, religious/political, disability and race discrimination legislation. The Commission has supported a range of cases in both employment and in accessing goods, facilities and services including education provision for young people from different community backgrounds, gender, racial group, e.g. Traveller children, and those with a disability.

Section 75 and Schedule 9 of the Northern Ireland Act 1998 place a statutory Equality Duty to promote equality of opportunity across nine categories, this includes "age".

These nine categories of gender, religious, political opinion, disability, marital status, sexual orientation, with and without dependants, racial group and age are overlapping and interwoven.

For example, within the age category, older people and younger people are also considered in the context of each of the other categories, i.e. young people, young men and women, boys and girls, Protestant and Catholic young people, young Traveller, Chinese, Indian, Pakistani, Black African, Asian people. Each of these in turn are transcended by all of the other categories, for example, young Traveller children with disabilities.

The equality duty is further reinforced with the need to have 'due regard to the promotion of good relations between persons of a different religious belief, political opinion and racial group' - 'persons' includes young people.

This Equality duty places statutory obligations on public authorities including government departments to prepare Equality Schemes for approval by the Commission.

All approved Equality Schemes must meet the requirements of the Commission's published Guidelines. These Guidelines are statutory Guidelines approved by the Secretary of State.

These must be meaningful and direct consultation with all Section 75 affected groups and this includes young people.

In reviewing schemes for approval, a major weakness has regrettably been the lack of effective consultation with young people and those with learning disabilities.

While there is a clear responsibility on public authorities to take ownership of the Equality Duty and mainstream equality and good relations across all nine grounds, there is a great danger that in an adult-driven environment the impact of public policy on young people is left to be voiced by poorly resourced voluntary children's groups. This is no substitute for a children's advocate and independent office of a Children's Commissioner.

Equality impact assessment of public policies will consider age - young people/children/older people.

In the Commission's view there is clearly a vote for a Children's Commissioner. How this Office is resourced and supported by effective statutory powers is a matter for the Assembly and I am sure that proposals in this regard have been clearly put to the Committee and the Assembly.

MRS JOAN HARBISON
Chief Commissioner

21 March 2001

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

SUPPLEMENTARY WRITTEN SUBMISSION BY:
EQUALITY COMMISSION FOR NORTHERN IRELAND

Equality legislation can be most beneficial to children in helping them to challenge discrimination, both in connection with employment for older children and in relation to service provision for all ages. It does not, however, extend to providing the Commission with the duty to work proactively to improve the circumstances of children either by exploring the types of provisions and facilities which would best meet the needs of young people or by working to eliminate the specific difficulties children face. Accordingly, I am clear that there would not be any advantage to be gained by placing the Children's Commissioner within the Equality Commission. Such advantages would only accrue if the existing work of the Commission and the proposed work of the Commissioner overlapped in a sufficient number of ways to realise economies or to boost the work of both. The Equality Commission's statutory remit to promote equality of opportunity and to eliminate discrimination will require us to continue to work with children in those circumstances where equality is denied but this work is only one of the very many issues facing children to be addressed.

From the point of view of the Commission, the independence of a Commissioner for children would be of prime importance. Such a role would require that the challenge and oversight function be exercised in a way independent of government departments or public bodies. It would be imperative that the role and the function of the Commissioner be clearly defined within the context of the Equality and Human Rights legislation and the Children Order (NI) 1995.

In the implementation of the equality duty under Section 75 of the Northern Ireland Act 1998, the Commission view as outlined in the Guidelines to the Statutory Duty is that all the groups affected by any public authority policy should be consulted directly. A Children's Commissioner would not, in the view of the Commission, be able to speak on behalf of all children in response to any consultation process. The Commissioner would, of course, have a role within the remit of promoting the interests of children in ensuring satisfactory and appropriate consultation, as well as in making a response on the basis of knowledge of the sector.

MRS JOAN HARBISON
Chief Commissioner

10 May 2001

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
EXTERN

SUMMARY OF KEY POINTS

THE ROLE OF THE COMMISSIONER FOR CHILDREN

Strategic Planning Role

Research Role

Monitoring and Advocacy Role

1. EXTERN's work is primarily in the reduction of social exclusion. We aim to achieve this through working directly with, and for, the marginalised and excluded groups in our society, children and adults alike. We are a service provider and our views are expressed from this perspective. We are currently delivering several preventative community based programmes to children, adolescents, adults and to communities themselves. In doing so we target those most at risk of disaffectation and exclusion, and seek to support local communities in addressing the complexity of problems that both cause and result from alienation. Extern is sensitive to the fact that juvenile criminality and anti-social behaviour is a major public concern, therefore our aim is to make communities safer, to reduce the incidence of criminal and anti-social behaviours by young people, to enhance victim empathy and to acknowledge and support community self-help initiatives and statutory agencies.

2. Extern welcomes the announcement of the intention of the First and Deputy First Ministers to appoint a Commissioner for children in Northern Ireland, and our view on the role of the Commissioner with regard to juvenile justice matters is as follows:

3. We support the view presented by the "Putting Children First Project", that the Commissioner must remain independent of government but also maintain close and effective working relationships with all government departments.

4. GENERAL POINTS

Children are children first and offenders second.

Children who offend do not do so in isolation. It is widely accepted that, ".there is a clear recognition that anti-social behaviour among young people owes more to a serious lack of social amenities and social forums (other than street corners)" Whose Law and Order, Tomlinson, Varley and McCullough 1988. Therefore, given that the levels of anti-social behaviours has not decreased since then, and that with the introduction of the Criminal Justice Children (NI) Order 1998, more young people were diverted into community and voluntary based provision, Extern believes that the Commissioner for children must also take account of the complexities of the social, educational and cultural issues relating to these young people, e.g. Research carried out by Extern in January 2001 highlights the fact that 8 out of 9 pupils who were availing of the Education other than at School (EOTAS) provision, had contact with the police and courts.

5. STRATEGIC PLANNING

Working closely with the Children's Services Planning groups across Northern Ireland, we believe that the Commissioner's remit should include an overarching province wide audit of the current community based preventative initiatives and the statutory responses to juvenile offending. This audit to be carried out with the aim of:

(a) From this audit the Commissioner for Children's role should be to champion the establishment of multi-agency, multi-disciplinary approach to addressing the issues for both young offenders and for their communities. The audit would also enable the Commissioner to lobby for funds for, often under resourced, community based initiatives and re-offending rates among young people, e.g. alternative education projects, mentoring programmes and support services to statutory agencies.

(b) Based on the proven success of working in partnership with statutory agencies in the provision of these community based programmes, Extern believes that the Commissioner for Children should be at the forefront of promoting a co-ordinated response and should act as an adviser to government in the overall strategic planning of children's services province wide.

(c) Extern welcomes the view expressed by the NIO in the report from the Committee for Health, Social Services and Public Safety Inquiry into Residential and Secure Accommodation for Children in Northern Ireland, that a distinct specialised residential provision is needed to meet the needs of the specific group of young people, who until the introduction of the Criminal Justice Children (NI) Order 1998, would have been in custody and who now are accommodated in care settings and in the community.

(d) Extern supports the view that this is resulting in social services and voluntary agencies like ourselves coming under increasing pressure to stretch already limited resources. In our own research which examined the profile of young people using our service, carried out late last year, we have established that (30%) of young people referred to our Youth Support and emergency Time Out programmes have been referred for reasons relating to offending behaviour. It is also significant that these young people collectively use (58%) of the services. Extern, in partnership with the NHSSB, has sought to implement the recommendations cited in the Assembly report to address this issue with the recent opening of our specialised Linden Services for Children accommodation in Newtownabbey. We believe that a Commissioner for Children has a role in both advising and lobbying government on strategic financial planning in terms of ring fencing monies to ensure that the views expressed in the aforementioned Assembly report are brought to fruition throughout Northern Ireland, not just in Newtownabbey.

6. RESEARCH AND MONITORING ROLE

Extern also contend that a Commissioner for Children should be the driving force behind commissioning research into effective models of practice in reducing both the factors in offending behaviours and the incidents of criminal activity. Where this research indicates positive outcomes the Commissioner's role should be to lobby government support in introducing and resourcing these models. In the international arena the research evidence of the success of both the "Wraparound" model in the USA and the "Multi-Systemic Therapeutic" (MST) approach being used in Norway have prompted Extern to introduce these models for the first time in Northern Ireland. Extern's Linden Services for Children has embraced the findings of this research and adopts a holistic approach, working collaboratively with the family, the young person and community, social services agencies, juvenile justice agencies, education providers, community mental health and health professionals to support the young person in addressing the factors which have resulted in alienation, social exclusion and ultimately criminal activity.

7. MONITORING AND ADVOCACY ROLE

Extern also believes that there is a group of young people who have been labelled as offenders, but whose offences are a direct result of abuse, neglect, ill health or inappropriate care placements, e.g. child prostitutes, children suffering from ADHD or other forms of behavioural disorders, homeless children, children placed into large residential units who are emotionally immature and unable to cope in this setting. We believe that a Commissioner should commission a province wide audit to ascertain both the numbers in this group and the nature of their circumstances. Extern also contends that a Commissioner should be instrumental in spearheading a hearts and minds campaign within government and public perception to re-define these labels and to influence government in providing alternative means of addressing these issues.

We believe that a Commissioner for Children should have the remit of monitoring and evaluating the effectiveness of any work being done with young people in custody aimed at reducing the risk of their re-offending on release. To this end Extern would support the view that the Commissioner should have direct unannounced access to young people in detention.

GEMMA DONNELLY
Programme Manager Children's Services

2 May 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
FIRST KEY (NORTHERN IRELAND)

First Key (Northern Ireland) is the Leaving Care Advisory Service. We set out to improve the life chances of young people aged sixteen and over leaving care. We do this by providing training for social workers and staff from other agencies, undertaking developmental consultancy and evaluations with service providers, through public policy lobbying and, perhaps most importantly, by talking directly to care leavers about what works for them

Introduction

Government reports and research studies, both here and across the water, highlight the dire situation of young people leaving care.

Young people leave care in Northern Ireland

Young People Leaving Care Need

The Children's Rights Commissioner must:

Government departments and other public authorities should be required to consider any recommendations made by the Commissioner and if they decide not to comply with them, to explain their reasons publicly.

In relation to Looked After Children and Young People Leaving care, a Children's Rights Commissioner could:

We prefer to keep "Rights" in the title as we strongly believe this helps to maintain the focus on protecting children's human rights; it also has meaning and appeal to children and young people.

ROSS McCREA
Senior Policy Officer

April 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
GINGERBREAD NORTHERN IRELAND

Mission Statement

Gingerbread NI is the lead agency working with and for one-parent families.

Gingerbread respects and promoted the integrity and life choices of one-parent families, challenges injustices, advocates for rights and positively responds to social change.

Gingerbread operated as:

Gingerbread strategic aims are:

What is a one-parent family?

Parents with dependent children who are:

There are approximately 76,000 one-parent families in Northern Ireland incorporating 145,000 children. This equates to 1 in 4 families with children.

Traditionally in Northern Ireland more lone parents are separated than divorced. This means that a common exit route out of lone parenthood, i.e. remarriage, is not available to them. Therefore, children in one-parent families remain in that state for a significant period.

With no significant other adult in the family children often take on a semi-caring role. They look after younger siblings or they become part of the decision making process within the family.

What do Gingerbread and its young people feel is important about the appointment of a Commissioner for Children?

Key issues for Gingerbread

In consultation with Gingerbread's young people:

That the Commission is independent of Government

They indicated that the position should not be one for 'rubber stamping'.

They indicated that the person should have experience of working with young people, 'not a civil servant'.

The post should be appointed through an independent process, 'somebody should not be just picked for the position and young people should be involved in choosing the person'.

That the Commission is representative of children and young people

They want a position that is accessible, 'not up there somewhere'; 'someone who will listen to what young people have to say'; someone who will act on what young people have to say'.

That the Commission has powers

A Commissioner for Children must have the authority and power to investigate issues that are relevant to all children. A Commission must also have the power to act on findings.

Gingerbread's young people raised the issue of their rights in the education sector. They want the Commission to have an impact on this sector. They feel that they are not heard, 'no matter what we say no-one takes any notice'; 'schools do what they want without asking us the pupils'.

That the Commission promote Justice for children and young people

Gingerbread as an organisation believes that children must have an effective voice in both public and private law. Where relationships break down children are very often not heard or not heard effectively. The issue of a Guardian Ad Litem or an equivalent for private law issues must be addressed.

Fundamentally, the young people in Gingerbread believe that the Commission should be there for all children and should be particularly aware of those children who are most in need and at risk of having their rights abused, 'kids who don't have parents to speak up for them'; 'kids who have got into trouble'.

MARIE CAVANAGH
Director

2 May 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
GROUPS CO-ORDINATED BY CHILD CARE NORTHERN IRELAND

What is a Commission for Children?

What are the Roles of a Commissioner for Children?

  • Act as an independent children's champion.
  • Act as an independent watchdog for the rights of all children living in Northern Ireland, including children who are ordinarily resident in Northern Ireland.
  • Monitor the Assembly's childproofing of existing and new legislation, policy and practice to ensure compliance with domestic and international human rights standards.
  • Monitor the Assembly's delivery or denial of children's rights for compliance with domestic/international human rights standards.
  • Consider and report on any and all aspects of children's lives for compliance with the United Nations Convention on the Rights of the Child.
  • Promote children's rights, raise the profile of children's issues and take an overview of the impact of all legislation, policies and procedures on children across all services in Northern Ireland provided for, or affecting children, with a view to making recommendations and developing good practice guidance and models, including cross-sector working.
  • Intervene when and as appropriate in any legal proceedings that may have implications for children's rights.
  • Take cases on behalf of or support children to take cases in circumstances where their rights have been denied.
  • Undertake investigations into alleged denials of children's rights.
  • Act as an advocate for children's rights and a channel for children's voices.
  • Actively engage with and consult directly with children and young people, including very young children.
  • Consult regularly with children's rights organisations.
  • Be a source of advice and information for children and young people about how to use existing complaints procedures, and for practitioners about good practice in the production and implementation of complaints procedures.
  • Promote understanding of and education on children's rights.
  • Promote respect for the views of children throughout society.
  • Promote a culture of children's rights.
  • Encourage, resource and conduct research into children's rights.
  • Compile information and statistics on children in Northern Ireland.
  • Prepare an annual report on the state of children in Northern Ireland.

What are the duties and powers of a Commissioner for Children?

  • The Commissioner must have the power to consider and make appropriate representations on any matter affecting children and their rights.
  • The Commissioner must have all necessary powers to promote a culture of children's rights in Northern Ireland including formal and informal education.
  • The Children's Commissioner shall advise whether a Bill or subordinate legislation is compatible with domestic and international human rights standards as they relate to children.
  • The Commissioner shall have power to keep under review all law, policy and practice relating to the protection of children's rights.
  • The Commissioner must have the power to research, analyze, report and publish on important issues of law, policy and practice, and matters of concern to children and young people in general.
  • The Commissioner must have the power to consider and report on all devolved matters and reserved matters, primary and subordinate legislation and policy.
  • The Commissioner must have all the powers necessary to undertake effective investigations in respect of any aspect of children's rights.
  • The Commissioner must have the power to take cases in his/her own name where there has been a denial of children's rights.
  • The Commissioner must have the power to give information and advice involving law, policy and practice relating to the protection of children's rights.
  • The Commissioner must have the power to intervene as a third party or appear as an amicus curiae on any matter or any proceedings in any court, tribunal, inquest, hearing or adjudicative process involving law, policy or practice relating to the promotion or protection of children's rights in Northern Ireland. The persons conducting the court, tribunal, inquest, hearing or adjudicative process shall have due regard to points made by the Commission in their intervention and/or appearance.
  • The Commissioner must have the power to assist, including financially, with proceedings in respect of a breach of the rights of an individual child.
  • The Commissioner must have the power to require the provision of information and the disclosure of documents in connection with these functions and initiate enforcement action to obtain information if necessary.
  • The Commissioner must have the power to bring proceedings involving law, policy or practice relating to the protection of children's rights.
  • The Commissioner must have the power to require the provision of information and the disclosure of documents in connection with these functions and initiate enforcement action to obtain information if necessary.
  • The Commissioner must have the power to require an individual to attend and give evidence in respect of any investigation into the denial of a child or children's rights or otherwise in respect of the carrying out of any of these functions.
  • The Commissioner must have the power to enter any premises or establishment where children are, including places of detention and all places where children are in the care of a public authority or of a person or body exercising functions of a public nature, to ensure children's rights are being protected or to investigate any alleged denial of rights.
  • The Commissioner must have the resources to carry out all or any of its functions effectively.
  • The Commissioner must have the power to do anything incidental or conducive to the performance of their functions.

How will the Commissioner be held accountable?

  • The Commissioner must be accountable to but totally independent of the Assembly.
  • The Commissioner will report to the Assembly on the performance of its functions during the year.
  • The Commissioner will produce an annual report on the status of children and young people in Northern Ireland, this would include an assessment of the position against the background of the United Nations Convention and the values and priorities embodied in this framework.
  • The Commissioner will be required to appear bi-annually before the Assembly or as and when required to the appropriate standing or executive committee.
  • The Commissioner shall keep proper accounts and financial records, and will be held financially accountable in the same way as all current non-departmental public bodies (NDPBs).
  • The Commissioner must always act within his/her statutory powers and duties. Failure to do so will render the Commissioner susceptible to judicial review.

How will the Commissioner for Children interface with other bodies, e.g. The Ombudsman, The Police Ombudsman etc?

  • The Commissioner for Children will not overlap with the functions of existing bodies; he/she will complement his/her role from the unique perspective of children's rights.
  • To prevent overlap Memorandums of Understanding must be drafted with the other NDPBs who have a remit which might potentially overlap with the Children's Commissioner.
  • The existing Memorandums of Understanding and protocols between current non-departmental public bodies and other independent bodies may be used, to establish protocols between the Commissioner for Children and other relevant bodies.
  • Memorandums of Understanding must be drawn up between the Children's Commissioner and Government Departments.

The Commissioner's Independence

The Commissioner must be appointed through an independent selection process, complying with Section 75 of the Northern Ireland Act 1998 and the Principles Relating to the Status of National Institutions, approved by the General Assembly of the United Nations in Resolution 48/134 of 1993.

Additional Information

There are Commissioner's Offices in many European countries and beyond including Austria, Belgium, Denmark, Iceland, Norway, Spain, Finland, Sweden, Germany, Hungary, South Africa, New Zealand and Wales.

Success of Commissioners/Ombudsman Offices

A Commissioner for Children is not just a theoretical ideal, but has practical outcomes, which improve children's lives. It has proved successful in many countries. The Norwegian Ombudsman defines his work as: -

" A state of mind or attitude characterized by faith in the competence of children".

Specific examples of the success of the Office include: -

  • Evaluation of the Swedish Ombudsman in 1998 concluded that the Office has played a significant role in the development of issues relating to children primarily through information, and opinion forming activities. It has made visible the overall living conditions of children and helped create a complete picture of their lives.
  • In Austria the Ombudsman has enabled greater integration of disabled children into mainstream schools.
  • In Norway the Commissioner has lobbied successfully to raise the age at which children can be held in adult prisons and was instrumental in promoting legislation prohibiting the physical punishment of children. Subsequent evaluation of the Norwegian Ombudsman concluded that the Office had helped to put the political spotlight on children moving them up the government's agenda. The Office was found to be popular and well respected within Government. Originally starting with 2 staff, it currently has 10 permanent staff.
  • Iceland's Ombudsman has prepared a "State of Children Report", focusing on particular issues such as child accidents, bullying and the impact of the media. The laws, which affect children in Iceland, have been written up in an accessible form for children, in effect a children's book of laws.
  • The Ombudsman in Spain has enabled children to have a say in the development of services that were provided for them, including placing suggestion boxes in schools.

Child Care (NI)'s Putting Children 1st project welcomes the commitment from the Assembly to establishing a Commissioner for Children. We would urge the Assembly to adopt a holistic vision for the Children's Commissioner which placed children first, but which would have the legal clout to act in relation to services and bodies which related to them or affected their well-being in order that the best possible outcomes can be assured for our children.

MARY CUNNINGHAM
Co-ordinator

March 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
HEALTH, SOCIAL SERVICES AND PUBLIC SAFETY (HSSPS) COMMITTEE

I have been asked by the Members of the HSSPS Committee to welcome the Committee of the Centre's Inquiry.

The HSSPS Committee, in its report to the Assembly on Residential Care and Secure Accommodation for Children in Northern Ireland, recommended the appointment of a Commissioner for Children and suggested a possible remit.

The Committee envisaged that the Commissioner's remit should include the following:

  • Ensure compliance with the Children (Northern Ireland) Order 1995.
  • Act as an independent watchdog for children's rights and welfare in Northern Ireland.
  • Consider and comment on the impact of policies on children and young people.
  • Compile information on the state of children in Northern Ireland drawing statistics from all sectors of government, statutory and voluntary bodies.
  • Act as a monitor to ensure that the Government is meeting its obligations under the UN Convention.
  • To act as an advocate and channel for children's voices in Northern Ireland.
  • Promote a culture of acceptance of children's rights in Northern Ireland and promote and encourage higher visibility of children's issues.
  • Have access to information from government, statutory and voluntary sources.
  • Encourage research into aspects of children's lives in Northern Ireland.

The HSSPS Committee looks forward to the appointment of a Commissioner for Children as soon as possible.

GEORGE MARTIN
Committee Clerk

27 March 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
HIGHER AND FURTHER EDUCATION, TRAINING &
EMPLOYMENT COMMITTEE

Thank you for the advance notification of the Terms of Reference agreed by your Committee for your Inquiry into the proposal by OFMDFM to appoint an independent Commissioner for Children in Northern Ireland. This was considered at our meeting on 29 March 2001, and members have asked if issues arising from your Inquiry, which may fall within the remit of the Higher and Further Education, Training and Employment Committee could be forwarded for their consideration at the draft report stage.

DR ESMOND BIRNIE MLA
Chairperson

2 April 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
NORTHERN IRELAND ASSOCIATION FOR THE CARE AND
RESETTLEMENT OF OFFENDERS (NIACRO)

1. NIACRO believes that recent legislation - The Children Order 1995, and Criminal Justice (Children) (NI) Order 1998 - have improved the circumstances of young people within the Criminal Justice system e.g. by reducing the numbers who are prosecuted, and by reducing the numbers who are sent into custody. However, there are still areas of concern where a Children's Commissioner could assist significantly. Below we detail NIACRO's general views on functions of the Commissioner's role, and specific responsibilities of the role in relation to Criminal Justice matters.

2. GENERAL - In recognising the sensitivities which prevail in relation to offending behaviour by children, NIACRO would suggest that the Commissioner has a key role to play in balancing the support and protection of those children who offend against the need to protect society from the effects of crime.

The Children's Commissioner should have a broad remit to address matters affecting the marginalised and vulnerable groups from which juvenile offenders often originate. The Commissioner should be (i) independent of government; (ii) should complement departmental activities rather than enable the government to abdicate its responsibilities; and (iii) should have a clearly defined role which includes - Advisor to government e.g. implementation of the United Nations Convention on the Rights of the Child, and the Age of Criminal Responsibility; Analyst of trends through data compilation and Provider of good practice guidelines; Monitor of the rights of children, with authority to Conduct the investigation of complaints; Legislation Proofing to ensure that children's needs are taken into account when new legislation is being drafted; Co-ordinator across government departments to maximise the effectiveness of Children's Service Planning and other 'joined-up' initiatives.

3. SPECIFIC CRIMINAL JUSTICE RESPONSIBILITIES - Whilst acknowledging that Criminal Justice remains a reserved matter in Northern Ireland, NIACRO firmly believes it is imperative that youth justice matters are included within the ambit of the Children's Commissioner. The Criminal Justice Review highlights youth justice as an area which offers particular opportunities for increased community participation, presumably because it is seldom contentious in relation to party/constitutional politics. The Commissioner's role ought to promote and complement these opportunities. Specific areas which require the Commissioner's attention in this respect include:

(a) Consistency of decision-making in relation to decisions about prosecution or diversion from court to ensure equity within and between urban/rural areas, and police/court divisions. Likewise, monitoring of decisions to send children into custody needs careful monitoring, and in some instances, redresses, for which no current opportunity exists.

(b) We have particular current concerns in relation to youth custody, where the Commissioner could exercise positive influence: the significant usage (60% of all admissions during 1999 - 2000) of unsuitable high-security accommodation for children whom the police need to detain for only short (overnight or weekend) periods, pending production in court. Most of these children are then bailed and do not reappear in the system, raising the question of why they need to be taken into custody in the first place. Secondly, the transition to a new single Juvenile Justice Centre for Northern Ireland: whilst this is a welcome development, it is imperative that this centre is imbued with sound principles, practice and philosophy from the outset e.g. there is a critical need to ensure a much better religious balance that currently exists in the staff composition (which is predominantly Protestant), given the consistent over-representation of Catholic children within the juvenile custody population, and the location of the new centre at Rathgael, which is perceived by many as being in a Protestant area. This is an opportunity for Northern Ireland to lead the way, a process which can only safely be overseen and monitored by a post such as that of the Commissioner. Thirdly, it is a regrettable fact that many children in custody are also Social Services' clients, for whom major care, accommodation, support and education difficulties exist when they exit from custody. In fact, despite emphatic legislative directives to the contrary, there are still examples of children who are primarily detained in custody so that their care needs may be met. The Commissioner could have a key gate keeping responsibility to ensure fulfilment of statutory duties by Social Services and Education and Library Boards in these difficult cases.

(c) The children of prisoners are an often neglected grouping, who have specific needs. Despite not being offenders themselves, they suffer unduly because of their enforced involvement in the Criminal Justice system, particularly in being significantly deprived of access to their absent parent. They are one of several minority child groupings for whom the Commissioner should have a particular responsibility.

OLWEN LYNER
Director

May 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
NORTHERN IRELAND FOSTER CARE ASSOCIATION (NIFCA)

Looked After Children In Foster Care - Key Facts & Issues

1. Numbers of children in care in Northern Ireland

  • The looked after population at 31st March 1999 was 2324 children.
  • The rate of looked after children per 10,000 in Northern Ireland at 52.8 remains higher than in England (49.0).

2. Who provides that care?

  • 65% of looked after children in Northern Ireland were placed in foster care in 1998/99.
  • On the 29th January 1997 there were 1380 carers approved by Trusts.
  • The majority of carers (69%) were between 40 and 60 years of age and had been approved for more than 4 years.

3. A National Foster Care Association report in 1998 developed a profile of children in public care in the UK, which shows that, compared with the general population they are up to:

  • 10 times more likely to be excluded from school.
  • 10 times more likely to attend a special school.
  • 4 times less likely to go on to further education.
  • 12 times more likely to leave school with no qualifications.
  • 4 times more likely to be unemployed between the ages of 16 and 24.
  • 60 times more likely to join the ranks of the young homeless.
  • 50 times more likely to be sent to prison.
  • 88 times more likely to be drug abusers.
  • 4 times more likely to suffer from mental health problems.

Young women in care are at least 4 times more likely to be pregnant or already have a child than other adolescents. In addition their own children are up to 66 times more likely to need public care.

In summary, children in public care are amongst the most disadvantaged and vulnerable groups in society.

4. Issues in Foster Care in Northern Ireland

  • Need to increase the number of foster homes to allow for matching the child to foster carers and provide the best possible care for that child.
  • Ensure that sufficient facilities and resources are available to assist foster carers to deliver high quality care to children who have particular needs, e.g. children with disabilities, learning difficulties.
  • Increased finances to pay enhanced allowances for those children who require additional support.
  • Ensure that the Educational and Health needs of looked after children are prioritised (including financial help re: further education).

5. The Commissioner for Children must:

  • Be guided by and promote full compliance with the UN Convention on the Rights of the Child.
  • Act as a powerful spokesperson on behalf of children and promote respect for the views of children throughout society.
  • Promote knowledge of and respect for the human rights of children throughout society.
  • Be independent of Government and free to set his/her own agenda.
  • Have the power to investigate individual cases in exceptional circumstances.
  • Be able to review and report freely and publicly on any matter related to children and their rights and interests.
  • Have powers to launch formal investigations including rights to access information and institutions, subpoena witnesses and make recommendations to improve the lives and well being of children and young people.
  • Have the necessary resources to carry out his/her functions.

6. In relation to Looked After Children and Young People in Foster Care, a Children's Rights Commissioner could:

  • Ensure that information is available to children and young people on their rights and how to claim them.
  • Ensure that children's rights in public care are being protected and investigate any alleged denial of rights.
  • Promote independent advocacy for all children and young people living away from home.
  • Promote awareness amongst public authorities for the additional needs of looked after children so that they are assisted to develop into healthy, well functioning citizens.
  • Ensure that foster carers are given the resources and support required in order to look after and promote the well being of children in their care.
  • Ensure that the rights of birth children of foster carers are equally promoted and safeguarded.
  • Consult directly with children and young people in public care.
  • Ensure that a balance is struck between rights and responsibilities and that the rights of foster carers and their families are also prioritised.

KATE LEWIS
Director

24 April 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
NORTHERN IRELAND GUARDIAN AD LITEM AGENCY

Introduction

1. The Northern Ireland Guardian Ad Litem Agency (NIGALA) was established as a Special Agency of the Department of Health, Social Services and Public Safety under the Health and Personal Social Services (Special Agencies) (NI) Order 1995.

2. Article 60 of the Children (NI) Order 1995 introduced the presumption of appointment of a guardian ad litem for the child in specified public law proceedings. (In England and Wales guardian ad litem panels were created over a decade earlier in 1984 with legislative provision for a gal in public law cases even preceding that date). The Agency also has responsibility for undertaking the duties of guardian ad litem work under the Adoption (NI) Order 1987.

3. The NIGALA commenced operations on the 4th November 1996; it currently has a complement of 39 guardians (8 self-employed), providing a regional service with headquarters in Belfast and a North-West office in L'Derry.

Guardian Ad Litem Role in Specified Public Law Proceedings

4. The guardian ad litem is appointed in accordance with the Magistrates Courts (Children [NI] Order 1995) Rules (NI) 1996 and the Family Proceedings Rules (NI) 1996. The guardian ad litem investigates as appropriate, appoints a solicitor for the child, represents the wishes and feelings of the child to the court, advises on timetabling of proceedings, analyses options available to the court and makes a recommendation. The Children (NI) Order 1995 has effectively given a 'voice' to children in public law proceedings.

5. Since November 1996 guardians ad litem appointments have been as follows :-

GAL Appointments : November 1996 - 12th April 2000

 

Number of Cases

No. of Children

Public Law

1,326

2,295

Adoption

696

815

Total

2,022

3,110

Children's Commissioner

6. The NIGALA welcomes the proposal to establish a Commissioner for Children in Northern Ireland. It is recognised that it is imperative that this post

  • is set in the context of a Children's Strategy
  • is accountable to, but independent of, the Assembly
  • is adequately resourced to carry out all of its duties
  • has in place machinery to consult with children's organisations and directly with children and young people.

7. It is not the intention of the NIGALA to offer in this submission all-embracing recommendations on the role and remit of a Commissioner. What follows are specific recommendations relating to children and young people who are the subject of civil proceedings in the Northern Ireland courts. These children are potentially extremely vulnerable; the decision of the court in care proceedings, adoption proceedings, secure accommodation proceedings or divorce proceedings (to name but a few) can be life-changing moments in a child's life.

8. It is therefore proposed that the following duties should be part of the remit of a Children's Commissioner.

(a) Monitoring the implementation of the United Nations Convention on the Rights of the Child with particular reference to Article 12

Article 12

(i) States Parties shall assure to the child who is capable of forming his or her own views the right to express those views freely in all matters affecting the child, the views of the child being given due weight in accordance with the age and maturity of the child.

(ii) For this purpose, the child shall in particular be provided the opportunity to be heard in any judicial and administrative proceedings affecting the child, either directly, or through a representative or an appropriate body, in a manner consistent with the procedural rules of national law.

A guardian ad litem working in tandem with a solicitor from the Law Society's Children Panel ensures that the child has a voice in most public law proceedings: the guardian usually acts alone in adoption proceedings to ensure the best interests of the child though occasionally the child may be legally represented. The United Kingdom however does not comply with Article 12 in respect of children involved in private law proceedings. There is an undeniable need to extend the child's right to be heard in judicial proceedings to private law cases, in particular those cases where there exists a conflict of interest between the child and his parents. At present in private law proceedings a court may seek a welfare report from a HSS Trust if a child is involved but at best this is treating the child as an object of assistance rather than offering the right to be heard. The Children's Commissioner, in monitoring Northern Ireland's compliance with Article 12, UN Convention, may seek to undertake a review of all support services for the Family Proceedings courts. These services have developed in a piecemeal fashion and are ripe for rationalisation and economy of scale. A similar review in England and Wales has recently resulted in the merging of the guardian ad litem service with the court welfare service and the children's duties of the Official Solicitor into a single national organisation.

(b) Monitoring the operation of children's legislation in particular The Children (NI) Order 1995 and the current adoption legislation, The Adoption (NI) Order 1987.

This is a considerable task and would require regular reporting arrangements with statutory/voluntary bodies and input from research projects.

Children (NI) Order 1995

This piece of legislation effectively combining public and private law relating to children was implemented on 4th November 1996. It has many positive features. Those parts which relate to children who are the subject of court proceedings are currently monitored by the Children Order Advisory Committee chaired by a member of the judiciary, the judge of the Family Division, Royal Courts of Justice. An example of the operation of the Children (NI) Order which is generating some concern at present is the duration of care proceedings before the Northern Ireland courts. It has been steadily increasing in recent years (see figure below).

Duration of Care Proceedings *

1997

1998

1999

2000

124.9

134.6

194.96

222.73 **

(Average No. of Days by Calendar Year)
* Excludes consolidated and multiple proceedings
** Provisional figure

Adoption (NI) Order 1987

The adoption picture in Northern Ireland has changed dramatically over recent years. The overall number of children available for adoption has fallen and fewer infants are now put forward for adoption.

  • 1st April 1999 - 31st March 2000 - a total of 72 children were placed by adoption agencies in Northern Ireland: only 9 (12%) were under 1 year old when the application to adopt was made.
  • In step-parent adoption proceedings 67 (83%) children were aged between 5-15 years of age. None involved infants.
  • Freeing Orders were granted in respect of 33 children, the majority of whom were looked-after by HSS Trusts. 50% were aged 5 years or more.

The legislation must change to meet the prevailing needs of these children. In England and Wales the Prime Minister's Review of Adoption 2000 has been followed by an Adoption and Children Bill which was presented to the House of Commons on 15th March 2001. There is now a critical need for a similar review of adoption legislation, structures and service delivery in Northern Ireland. The appointment of a Commissioner for Children would ensure that the needs of these children are given priority, that a legislative review would take account of locally generated research and that new adoption legislation is in harmony with the Children (NI) Order 1995.

(c) Ensure that the court process in relation to both civil and criminal cases involving children take full account of the needs and rights of the individual child.

Immediate Requirements :-

    • improved support for children appearing in court
    • improved facilities/environment in courthouses for children and their families
    • inquisitorial ethos as opposed to an adversial ethos in the civil courts.

RONNIE WILLIAMSON
Executive Director

25 April 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
NORTHERN IRELAND HUMAN RIGHTS COMMISSION

Thank you very much for the invitation to be here today to present evidence on the role which could be played by a Children's Commissioner for Northern Ireland.

The Northern Ireland Human Rights Commission fully supports the proposal to establish an independent Children's Commissioner for Northern Ireland. Before looking at the role which such an office could and should play, and in order to put that role into some context, I will provide a brief description of the powers and duties of the Human Rights Commission and a short summary of the work the Commission has been able to undertake to date in relation to children's human rights.

The Northern Ireland Human Rights Commission

The Northern Ireland Human Rights Commission (NIHRC) came into existence on 1 March 1999. It was created by Parliament at Westminster as a result of the Belfast (Good Friday) Agreement. The Commission was the first of its kind to be established in Western Europe. The International Co-ordinating Committee of National Human Rights Institutions now recognises some 40 such institutions at a national level across the world. A Human Rights Commission has been established within the last few weeks in the Republic of Ireland.

The legislation stipulating what the Commission can do is the Northern Ireland Act 1998 (sections 68 to 71 and Schedule 7). The Act imposes seven duties and confers four powers on the Commission.

The Commission's duties:

  • To keep under review the adequacy and effectiveness in Northern Ireland of law and practice relating to the protection of human rights.
  • To advise the Secretary of State and the Executive Committee of the Northern Ireland Assembly of legislative and other measures which ought to be taken to protect human rights.
  • To advise the Northern Ireland Assembly whether a Bill is compatible with human rights.
  • To promote understanding and awareness of the importance of human rights in Northern Ireland by, for example, undertaking or commissioning or otherwise assisting research and educational activities.
  • To provide advice to the Secretary of State on the scope for defining, in Westminster legislation, rights supplementary to those in the European Convention on Human Rights (in a document to be called a Bill of Rights for Northern Ireland).
  • To do all that it can to ensure the establishment of a Joint Committee with the Human Rights Commission in the Republic of Ireland.
  • To make to the Secretary of State within two years such recommendations as it thinks fit for improving the Commission's effectiveness.

The Commission's powers:

  • To give assistance to individuals who apply to it for help in relation to proceedings involving law or practice concerning the protection of human rights.
  • To bring proceedings in its own name involving law or practice concerning the protection of human rights.
  • To conduct such investigations as it considers necessary or expedient for the purpose of exercising its other functions.
  • To publish its advice and the outcome of its research and investigations.

The Human Rights Commission's work on children and young people

The Human Rights Commission has prioritised the protection of children's human rights. In the absence of a dedicated Ombudsman or Commissioner for Children, or other independent watchdog for children, the Commission has sought to act in some way, at least in the interim, as an independent watchdog for children's rights. The Commission has already carried out, or is currently in the process of carrying out, the following work relating to children's rights:

  • Advising the UK Government on the extent to which policies and legislation affecting children meet international standards, especially the United Nations Convention on the Rights of the Child. In 2002 the Commission will be contributing to the review by the UN Committee on the Rights of the Child of the UK's latest periodic report.
  • Commenting on the future of the juvenile justice estate in Northern Ireland, on the Family Law Bill, on the Adoption (Inter-country Aspects) Bill, on the Criminal Justice Review and on the Burns Review of Post-Primary Selection.
  • Assisting applicants with cases relating to children's human rights (e.g. a case concerning the denial of a classroom assistant to a child with a disability in an Irish-medium school, and a case alleging discrimination in the provision of grammar schools places for Protestant boys in an area of County Down).
  • Carrying out an investigation into the care of children in Juvenile Justice Centres in Northern Ireland.
  • Submitting evidence to the inquiry conducted by the Northern Ireland Affairs Committee of the House of Commons into relocation following paramilitary intimidation in Northern Ireland.
  • Producing a one-page child-friendly version of the Commission's draft Equality Scheme 2000-2005.
  • As part of its work on a Bill of Rights for Northern Ireland the Commission has published a pamphlet on children's rights and established a working group to report specifically at which children's rights should be included in the Bill of Rights (copies of these documents can be made available to the Committee). Among the rights mentioned in the latter report are the right to better information, the right to be heard, the right to improved access to health and education services and the right to a revision of the age of criminal responsibility (currently lower in Northern Ireland - 10 - than virtually anywhere else in Europe).
  • The Commission is presently liaising with non-governmental organisations on how best to consult with children about the content of the proposed Bill of Rights. These NGOs include the Northern Ireland Youth Forum, the Children's Law Centre, the Save the Children Fund and Amnesty International.

Limitations placed on the Commission's work

While the Commission has tried to prioritise the protection of children's rights, there are serious restrictions on the work it is able to do. The roots of these limitations are both financially and legally based. As required by the Northern Ireland Act 1998, the Commission has recently reviewed its powers and effectiveness and submitted a report to the Secretary of State detailing the difficulties encountered and making recommendations for changes to the law (a copy of this report can be made available to the Committee). The Commission believes that its own experience provides many lessons for those establishing the office of Children's Commissioner.

The Commission's budget of £750,000 has to cover staff and Commissioner salaries as well as running costs, including the funding of court cases. This is an inadequate sum and has placed serious restrictions on the work the Commission can do, including work on children's rights. For example, the Commission has limited resources for consulting with children and young people. There are many issues relating to children's rights which the Commission will be unable to look at in the foreseeable future given its limited resources. The Commission's financial position is made worse by the fact that it is precluded from raising funds independently.

The Commission's powers are also limited, particularly in relation to casework and investigations. For example, recent judicial decisions suggest that the Commission is not able to make a third party intervention in legal cases. The Commission has also no power to compel people to give evidence to the Commission, either orally or in the form of documents. Limitations on the Commission's powers of investigation have made it virtually impossible to carry out full investigations into the protection of human rights, including children's rights. For example, during the current investigation into juvenile justice centres, the Commission has been refused access to relevant documentation by both statutory and non-governmental bodies. Many staff in juvenile justice centres also chose not to be interviewed for the investigation. The Commission had considerable difficulty in arranging access to young people in custody in order to conduct interviews with them.

It would be disastrous if the Children's Commissioner's office was to be restricted in ways similar to those experienced by the Human Rights Commission.

Why a Children's Commissioner is needed

There are several important reasons why children in Northern Ireland, as elsewhere, need a special Commissioner to protect their rights. By virtue of children's special vulnerability, which is recognised by international human rights standards such as the United Nations Convention on the Rights of the Child, children are excluded from playing any real part in the democratic structures of society, most notably because they cannot vote. Children also find it difficult to gain access to the legal system in order to assert their rights or to seek remedies for breaches of their rights. Children therefore, need someone to be a watchdog for their rights.

The UK Government voluntarily ratified the United Nations Convention on the Rights of the Child in 1991. The Treaty Body for the Convention, the United Nations Committee on the Rights of the Child, has consistently commended the establishment of independent offices for children, such as Children's Ombudspersons and Commissioners.

The Council of Europe, in its European Strategy for Children (1996), has also proposed the appointment of a "Commissioner (Ombudsman) for children or another structure offering guarantees of independence, and the responsibilities required to improve children's lives, and accessible to the public through such means as local offices."

Children's organisations in Northern Ireland are also strongly supportive of the recommendation that a Children's Commissioner be established. The Human Rights Commission has itself been lobbied on the need for such a Commissioner to be appointed.

The Commissioner's role

The Commissioner must have a high profile and should ideally be someone who will bring status and respect to the post and be popular with children themselves.

A core role of the Children's Commissioner should be to monitor the extent to which the UK Government is honouring its commitment to uphold the minimum standards contained in the UN Convention. To carry out effective monitoring it is vital that the Commissioner's office should be entirely independent of Government. However, to work for the best interests of children, it is also important that the Commissioner's office and the Government enjoy a positive collaborative relationship.

Children's lives cannot easily be compartmentalised. In the current vocabulary, there is a need for 'joined-up' planning for children. The Children's Commissioner's Office will, therefore, need to have a broad remit which covers every aspect of children's lives, from health, to education, to play, to contact with the justice system and so on. All of these and other areas are covered by the UN Convention.

The Commissioner's constituency must be every child under the age of 18 in Northern Ireland. He or she will also have a duty in law to promote equality of opportunity and good relations.

In the opinion of the Human Rights Commission, the Children's Commissioner's role should include the following. (This list is a minimum and is not necessarily exhaustive.)

  • Acting as a watchdog for the human rights of children (both those currently living in Northern Ireland and those who are otherwise ordinarily resident in Northern Ireland).
  • Assessing existing and new legislation and policy for compliance with domestic and international human rights standards.
  • Submitting to the UK and Northern Ireland governments recommendations, proposals and reports on any matter affecting children's rights.
  • Having the right to have access to all children cared for by the State (in both care and custody).
  • Taking cases in its own name and assisting children in taking cases where there are allegations of breaches of children's rights.
  • Acting as an advocate for children's rights and monitoring the extent to which children's rights are delivered or denied in Northern Ireland.
  • Carrying out and supporting research into children's rights in Northern Ireland.
  • Conducting investigations into alleged violations of children's rights.
  • Assisting in formulating and executing human rights teaching for children and young people.
  • Promoting a culture of children's rights.
  • Actively engaging with children and taking account of children's views.

We strongly believe that a Children's Commissioner should not be limited to dealing with devolved matters: his or her remit must extend to reserved matters as well (otherwise, for example, criminal justice and policing issues could not be looked at). This appears to be one of the defects in the current Bill at Westminster providing for a Children's Commissioner for Wales.

We would also urge those responsible for establishing a Children's Commissioner in Northern Ireland to have close regard to the duties and powers of the Children's Ombudsmen in jurisdictions such as Norway and Sweden.

To carry out this role effectively the Children's Commissioner must be adequately resourced and equipped with the necessary powers. At the very least the Commissioner's office must be compliant with the UN's so-called "Paris Principles", agreed by the General Assembly in 1993. These set out the characteristics which the UN believes national institutions for the protection of human rights should display. For example, the Principles state that a national institution shall "hear any person and obtain information and any documents necessary for assessing situations falling within its competence."

The process

The Northern Ireland Human Rights Commission welcomes the openness and constructiveness of the Northern Ireland Government in the process thus far. We are pleased to have the chance to contribute to the development of the office of the Children's Commissioner.

There is currently an opportunity which must not be lost for children in Northern Ireland. It is vital that the process of consultation about the role of the proposed Commissioner and ensuing legislation is inclusive and open, but also that it is time-limited. It is crucial that children themselves are consulted during the process and that sufficient resources are made available to make this meaningful.

PROFESSOR BRICE DICKSON
Chief Commissioner

21 March 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
PARENTS ADVICE CENTRE (NORTHERN IRELAND)

Parents Advice Centre Northern Ireland (PAC) has been in operation since 1979 delivering support and guidance to parents through a helpline and appointment system.

It has three projects: the Parenting Project, Men's Project and the Parenting Forum.

Trained volunteer helpline workers operate the service from four Centres in Belfast, Derry, Dungannon and Ballymena.

Context

Parents Advice Centre very much welcomes the opportunity to consult a Children's Commissioner. While recognising that the primary function of the Commissioner is as an independent champion for children, PAC would emphasize the importance of a holistic approach towards children's issues. The welfare of children is inextricably linked to the parenting the child receives. It is important to emphasise that families are under more strain than ever. Parenting needs a higher profile if we are to support families effectively and give all children the best chance to reach their potential . We would feel strongly that monitoring, investigation and advocacy on behalf of children by the Commissioner should have a parent dimension to it.

Often services relating to children seem to marginalise the parents' role. Examples of this can be seen in Education, Social Services, and Health. While children's interests are paramount, the role of the parent needs to be given consideration.

Currently the range of services which deliver parent support is extremely limited, and choice and accessibility restricted. Much of the support work and the parenting programmes with parents is provided by the voluntary and community sector, and their ability to sustain services is entirely dependant on funding. The uncertainties of finance make planning even in the short-term problematic.

If we are to make meaningful improvements to children's lives, models of good practice should be available to all parents to enable them to enhance their skills and effectiveness. Parents who feel more confident about their parenting have increased self esteem which inevitably affects the children and family life. Parenting programmes are being requested by parents but are not available with appropriate choices to meet all parents needs. Children destined to FAIL.

When problems arise there seems to be recurrent practice which indicates that responses to the child's difficulties are seen in a "pigeon-hole" approach. While it seems that some services work in collaboration parents continue to refer to experiences which indicate that integrated working is not universally in operation. This leaves parents at best confused and at other times angry and frustrated. Inevitably this impacts adversely on the child.

Level of advocacy.

Issues Facing Parents

  • Poverty
  • Lack of support on issues such as child management, discipline, separation and divorce, etc
  • Lack of affordable childcare
  • Lack of information about support services
  • Lack of clarity about processes and systems
  • Under-recognition of the importance of their role
  • Inability to influence systems which affect their children e.g. schools, hospitals
  • Consultation - Training, support - give views on all equal basis
  • Voluntary not listened to not rated
  • Evaluations carried out by voluntary groups tend not to be regarded highly enough when planning services
  • Attitude of authorities and personnel
  • Coping with chronic illness
  • Child Protection
  • All of these key issues impact on child.

Commissioner could make a difference to children:

By adhering to the principle that parents are an integral part of children's up-bringing when carrying out any investigation or advocacy.

By requiring structures to be in place which will ensure that cross cutting issues will be addressed both interdepartmentally and between children and adult services.

By investigating how policies and practices are able to deliver integrated services for children.

By investigating the policies of service-providers in respect of their criteria for allocating funding towards intervention and preventative services and the difficulties which arise from lack of sustainable services, particularly in the voluntary and community sectors.

By assessing the level of support services available to all parents to meet their needs as a diverse group and robustly promoting the expansion of services where gaps have been identified.

By requiring the Boards and Trusts to take responsibility to ensure that comprehensive and accessible information about the services is available to families.

By requiring Department of Health and Social Services and Public Safety to provide comprehensive information on services for children and parents to all those working with families.

PIP JAFFA OBE
Chief Executive

2 May 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
REGIONAL DEVELOPMENT COMMITTEE

The Committee considered the terms of reference for the Children's Commissioner Inquiry and has agreed that it does not wish to make any comment at this stage.

LIAM BARR
Committee Clerk

29 March 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
THE ASSEMBLY OMBUDSMAN FOR NORTHERN IRELAND

INTRODUCTION

The Committee of the Centre is undertaking an enquiry into the proposal for a Commissioner for Children for Northern Ireland. The Terms of Reference are:-

"To examine the proposal by the Office of the First Minister to appoint an Independent Commissioner for Children for Northern Ireland, to make recommendations on the role and remit of the Commissioner".

This brief paper has been prepared by the Ombudsman in response to a request from the Committee to explore the relationship between the Assembly Ombudsman/Commissioner for Complaints and that of the proposed Commissioner for Children.

BACKGROUND

The role of the Ombudsman embraces the Offices of the Assembly Ombudsman and the Northern Ireland Commissioner for Complaints. The Office was established in 1969. It is underpinned by primary legislation, currently the Ombudsman (Northern Ireland) Order 1996, the Commissioner for Complaints (Northern Ireland) Order 1996 and the Commissioner for Complaints (Amendment) Order 1997.

The remit of the Assembly Ombudsman is to investigate complaints of maladministration against Government Departments and their Agencies whilst the separate role of the Commissioner for Complaints deals with complaints against the wider public sector eg, Housing, Education, Health and Social Services. Also within the Health and Social Services, since 1997, the Commissioner has the authority to investigate the clinical and professional decisions of Health and Social work staff.

In conducting his investigations the Ombudsman operates in an inquisitorial role to establish the facts of the case. In so doing he has authority comparable to that of the High Court in respect of compelling the production of evidence, the discovery of documents and attendance of witnesses. Importantly all investigations undertaken by the Ombudsman are based on the principle that he is neither an advocate for the complainant nor an apologist for the public body complained against. To that end all investigations are conducted with regard to three core values which inform the work of his Office, namely, independence, impartiality and integrity. This approach is essential to the acceptance of the validity of his findings and his recommendation of any remedy he considers appropriate.

DEVELOPMENTS IN THE PROTECTION OF HUMAN RIGHTS AND EQUALITY

In 1969 the Ombudsman was effectively the only recourse - apart from the courts - which supported the citizen's right to have a complaint against government and public services investigated. This situation has now altered significantly with the development of the Equality Commission, the creation of the Human Rights Commission, the appointment of the Police Ombudsman and indeed the emergence of the Assembly itself with the authority to hold Departments and public bodies to account through its Committee structures.

In addition, there are other organisations in the public service system which are statutorily empowered to investigate complaints and to inspect and monitor standards of service in discrete areas eg the Social Services Inspectorate, the Schools Inspectorate, Environmental Health Departments and Registration and Inspection Units within Area Boards and Health and Social Services Trusts. Clearly it is important therefore that this complex environment is explored and tested before finalising the role, responsibilities, powers and accountability of the proposed Commissioner for Children.

THE OMBUDSMAN AND CHILDREN

While many of the existing investigative and inspection bodies include some element of protection for children I can only speak authoritatively for my own Office.

The legislation which informs my work covers the entire population - children are therefore included within the remit of the Office. A child has full equal right to access to my Office. The legislation makes specific provision for those who are not able to articulate their complaint by enabling another to lodge and present a case on their behalf.

Some examples of the type of complaint involving children which the Office has dealt with are their treatment by the Health Service, provision of care by Social Services, School Transport and the provision by Local Councils of play and recreation facilities. My role in such cases is to investigate the complaint against the policy framework which has been formulated and adopted by the public body. I do not however have a statutory authority to advocate on behalf of children whose cases have been dealt with in a way that is consistent with the policy but whose personal circumstances might have required a more individualised response.

Where a series of cases arose which I concluded were caused by a poorly formulated policy or a pattern/trend of failure I could, if nothing was done to remedy the position, draw the matter to the attention of the Assembly.

Interestingly while my colleagues in Scotland, Wales and England can like myself only become involved in an inquiry on receipt of a complaint from an individual, the Ombudsman in the Republic of Ireland can where he perceives a systemic failure or pattern of failure indicate a comprehensive review of how a service is operated, involving consideration of how the policy was formulated and how it is generally applied. He can also investigate an individual case unless he considers a person has been adversely affected.

It is important to note the role of the Court of Care and Protection which is part of the Northern Ireland High Court in making decisions about the interests and rights of individual children and parents. An application to the Court would have an immediate implication for the Ombudsman's role in a case.

PROPOSED COMMISSIONER FOR CHILDREN

If the proposal to appoint a Commissioner for Children is implemented I believe it could provide a central strategic platform which will have the potential to protect, support, and promote the well being and interests of our children and young people in Northern Ireland.

There are some key areas which the role must focus on if a proactive approach to children's rights and the development of their potential is to be achieved.

1. The enhancement of the 'systems' in all their aspects that affect the lives of children in a way which will develop and support a capacity to listen, respect and act on the views of young people and children. There are a number of activities which this could involve.

  • Children's champion - a high public profile.
  • Proactive and continuous engagement and consultation with children and young people and support for the initiatives and structures to achieve this.
  • Proactive monitoring of the commitment and capacity of agencies to meaningfully consult and involve children and young people.
  • Provision of expert advice and information.
  • Promotion of research and development into every aspect of children's lives.

2. The sustained promotion of the rights of children and young people.

  • Promotion of knowledge of children's rights in society with the objective of creating a children's rights culture.
  • Monitoring function - to ensure that the bodies and authorities that have a particular responsibility for securing the interests of children effectively and continuously meet that responsibility.
  • Providing support to children in presenting their case to those with a responsibility to examine suspected or alleged breaches of rights.

3. The examination of Government policy, Departmental strategies and the implementation plans by their agencies in order to ensure co-ordination and coherence so that the best possible outcomes can be achieved for children and young people.

  • Quality assurance - policy emphasis on inclusion. That all children are receiving services to which they are entitled to promote their full potential - their health, educational, emotional and social development.
  • Ensure that children who are vulnerable or in need receive an appropriate level of care and support relative to their needs.
  • Monitor the development of interagency co-operation.
  • Identify best practice; disseminate and monitor its implementation.

I would have to be frank and say that I consider such a powerful and important advocacy role would not sit well with a direct investigative responsibility. Indeed in my current role, to avoid any perception of partiality, as a matter of practice I refrain from commenting on policy proposals for areas in which I could be asked to hold an investigation.

Therefore, in exercising the "Champion" role I consider a Commissioner for Children could act in presenting a child's case to whichever of the authorities had the appropriate statutory investigative remit. However I would have a concern as to whether a person or body against whom a child made a complaint would see the Commissioner as someone who could examine such an allegation in an unbiased way.

ACCOUNTABILITY AND GOVERNANCE

The Office of Commissioner for Children should be independent. It needs to be:

  • Adequately resourced.
  • Have adequate powers to fulfil the roles ascribed to it.

The Commissioner should report to the NI Assembly, discharging this responsibility through:

  • An Annual Report.
  • Regular direct reporting to the Assembly on the performance of its functions during the year.
  • Fully utilising the powers ascribed to the Office.

PARENTS' RIGHTS

Finally before I come to some key questions which the Committee might wish to consider, it would be important that the key issue of the rights of parents in this evolving debate are articulated and given due consideration.

KEY QUESTIONS

Key questions which I believe the Committee might wish to consider are:-

1. Within current arrangements what gaps or shortcomings have been identified in existing structures and how might a Commissioner for Children address these?

2. What are the potential areas of overlap and potential blurring of responsibility and accountability between the proposed role and those already in place eg the Court of Care and Protection, the statutory Complaints and Representation procedure for Children in Care, the Human Rights Commission, the Equality Commission and the Social Services Inspectorate?

3. Is it envisaged that the Commissioner for Children would be able to advocate and represent the interest of a child in care where the child has made a complaint against the relevant Health and Personal Social Services, Education or local government body, or where the court may already have appointed a guardian ad litem?

4. Could the Office be located within an expanded Equality Commission and so provide a continuum of rights all of which would be on an equal footing and thus avoiding the potential from a range of other groups who could argue for equality of treatment by way of a special Commissioner eg Learning Disabled, Disabled, Mentally ill?

5. Would the Commissioner for Children be confined to the Public Sector or would the Office have a role in challenging the Private Sector eg in areas such as exploitive or targeted advertising?

6. Is there a conflict of interest between advocating for a specific group and then the need to be perceived to be impartial in investigating a complaint made by an individual from that group?

7. Is the focus of the Commissioner to be all children or only children in need?

8. How would the Commissioner be accessed by children and how could the performance of the role be judged in ensuring children's views are actioned?

9. Is there a case for sequencing and evolving the remit of the Office so that it would be built and developed, based on experience over time?

CONCLUSION

I believe that a Children's Commissioner as a Champion for Children's rights can make a significant difference. While a focus on rights is important it must be balanced against the other key roles of building real engagement with children and young people and the effective co-ordination of all those services that affect the lives of children.

The Commissioner should assume responsibility for ensuring a coherent and strategic approach to the collection of data about children here, with a view to making it easily accessible and a relevant benchmark for the application of standards, for instance to the rights enshrined in the UN Convention on the Rights of the Child and ensure that Northern Ireland can contribute to the five year requirement to report on its adherence to the UNCRC.

The Commissioner should have a research budget and foster research on areas of particular concern, and research which would fill gaps in available data.

The Commissioner should raise awareness of issues relevant to the welfare and rights of children and advocate the value of children in the family and society.

The Commissioner should advise government departments, public bodies and voluntary agencies on whether their policies comply with the demands of national and international law as it applies to children and advocate necessary changes.

The Commissioner's advisory remit should embrace all the areas of law and practice set out in the UN Convention on the Rights of the Child, and not be limited to core areas such as education and health. He/she should advise on practical steps which need to be taken to fully implement the Convention either in terms of law reform or at an operational level.

A narrower remit is suggested in terms of using legal powers of investigation and enforcement. The standards on the UN Convention are not specific enough to be directly enforced by an individual. Therefore, the Commissioner should encourage authorities to develop a culture where children are treated with respect, rather than to work for this in isolation from other bodies. The legal protection of children should be worked out by participating in the legal frameworks available under domestic law, including the Human Rights Act and the equality provisions of the Northern Ireland Act. Obviously the Commissioner would also have a duty to advise on how these frameworks might be improved in the interests of children. There is a danger that the Commissioner could detract from and even undermine such existing frameworks. This could be true of existing complaints systems and appeal systems within the health and social services and the education sphere. It might also be true of the role of the Human Rights Commission, Equality Commission and Ombudsman. I would advocate that the Commissioner should seek to facilitate and underpin the work of these bodies on behalf of children so that their potential to act for children is maximised, rather than set up an unrelated system of investigation and action. This would have the advantage of efficiency, but more importantly would "mainstream" children's interests, giving them equal weight with those of adults and encouraging a culture of consideration of children rather than an attitude of "this is an issue for the Commissioner for Children".

The Commissioner might have specific roles here. First, to inform families and children in a meaningful way of the existing provision which they can make use of. Secondly, to have power of referral to other bodies where an issue is raised or identified, and a right to receive a report from the relevant body of how the referral has been dealt with. Such a referral might stem from an individual complaint, or from the Commissioner's own scrutiny. If dissatisfied with the response received, the Commissioner would have power to initiate legal proceedings if appropriate.

The Commissioner should advise on how cross border links within Ireland and the harmonisation of laws, might better provide for children's rights and protection. The Commissioner should also contribute to the development of European and international measures and mechanisms to safeguard children.

Finally a Commissioner for Children must be a catalyst for change which will ensure

  • Children will have a voice
  • Children's lives will be better understood
  • Children will receive effective support and services.

However it must be remembered that while the creation of a Commissioner for Children is an essential core element of developing a child centred society it is only one element of a "whole system" approach which must be developed.

T FRAWLEY
The Assembly Ombudsman for Northern Ireland

9 May 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
THE HEALTH AND SOCIAL SERVICES COMMITTEE OF
THE NATIONAL ASSEMBLY FOR WALES

General Background

1. Three of the four main political parties in Wales included a commitment to a Children's Commissioner in their Assembly election manifesto. The Conservatives endorsed the principle after the election of the Assembly.

2. The Welsh Office's Social Services White Paper - "Building for the Future" (published March 1999) responded to the Utting Report ("People Like Us") saying that the Government would consult on options for strengthening advocacy and complaints arrangements for children. These would include the possibility of an independent Commissioner for Children's Services.

3. Others who had advocated a Commissioner include:

  • Welsh Local Government Association in 1998;
  • People giving evidence to the North Wales Child Abuse Inquiry (1997-98);
  • Welsh Affairs Select Committee (1999);
  • The voluntary sector.

4. "Lost in Care", Sir Ronald Waterhouse's report of the North Wales Inquiry, published February 2000, recommended the early appointment of a Commissioner.

Powers of the National Assembly for Wales

5. These are defined in the Government of Wales Act 1998. The Assembly does not have primary legislation powers. Any proposals the Assembly has for primary legislation are taken forward through the UK Government, via the Secretary of State for Wales. The Assembly has power to pass secondary legislation on devolved matters.

6. Under the Act the Assembly is required to establish subject committees mirroring the portfolios of Assembly Secretaries (now known as Ministers).

7. Ministers are also members of the committees. The subject committee's responsibilities are defined in Standing Orders. They include the requirement to contribute to the development of the Assembly's policies within the field for which the relevant Minister is accountable to the Assembly.

Health and Social Services Committee

Summer 1999

8. Following elections to the National Assembly in May 1999, the Committee first met in June and agreed that the issue of a Children's Commissioner should be a priority for its first year's work.

9. The Committee agreed its terms of reference as:

"to consider the remit, role and functions of a Commissioner for Children's Services having regard to the

  • Purpose and nature of the post;
  • Relationship to the Assembly and other organisations in Wales;
  • Range of services to be covered;
  • Children for whom a Commissioner would have responsibilities;
  • Functions to be exercised;
  • Powers which would be needed;
  • Scope of existing or need for new legislation;
  • Set-up, recurrent and compliance costs; and
  • Priority for a Children's Commissioner within the Assembly's health and social services programme."

10. The Committee held preliminary discussions with Children in Wales, a major charity which aims to promote the interests of children and young people and to improve their status in a diverse, multi-cultural and bilingual society. Children in Wales provided information on Commissioners appointed by other countries:

Norway, Sweden, Iceland, Denmark, Austria, Ukraine, New Zealand and also city of Madrid.

11. The Committee agreed that it should undertake comprehensive consultation and this should include children's views. It was agreed that existing networks of children/youth organisations should be used and that care should be taken to include children and young people whose background and circumstances might otherwise exclude them.

12. The pre-16 Education, Schools and Early Learning Committee were invited to take part in the Committee's work and were subsequently represented at Committee meetings.

Autumn 1999

13. The Committee undertook public consultation. Organisations and individuals were targeted and public notices placed in key newspapers and journals. Written views were sought based on the Committee's terms of reference, viz:

  • The extent of shortcomings in existing arrangements for children's services (which the Commissioner might address);
  • The extent to which such a post might overlap with other existing or proposed arrangements to deal with children's complaints or promote their interests;
  • What a Commissioner's remit, role and functions might be;
  • Whether a Commissioner could be appointed on a non-statutory basis;
  • Whether statutory authority would be needed and the form that might take;
  • The estimated costs and how those could be met;
  • What priority the Assembly might give to the establishment of such a post;
  • To whom the Commissioner might be accountable.

There were 94 written responses to the consultation.

February - March 2000

14. The Committee received further oral evidence from key organisations. Members visited a family centre to listen to the views of workers and clients and also discussed the issues with people in their constituencies.

15. The Consultation indicated a degree of consensus and this was subsequently borne out in oral evidence. The areas of consensus are set out in the Committee's report.

April - May 2000

16. The Committee discussed the evidence, reached its conclusions and at the end of May tabled and published its report.

June 2000

17. The Assembly in plenary endorsed the Committee's report and formally asked the Secretary of State for Wales to convey to the Westminster government the Assembly's proposal for primary legislation.

18. In the meantime the Care Standards Bill had been introduced to Parliament, and the Secretary of State had secured a government amendment which would give limited statutory powers to the Commissioner. The Bill received royal assent on 20 July. (See Annex 1 for summary of the provisions of the Act.)

Autumn 2000

19. In accordance with the Committee's recommendations, the Assembly established an ad hoc committee to advise on the appointment. Its terms of reference were to:

(i) determine:

the job specification for the post;
the criteria against which candidates would be assessed;
the terms of the advertisement and other recruitment documentation, such as the application form;
the media in which the post would be advertised;
how children and young people would be involved in the appointment process;

(ii) advise on the level of remuneration for the post;

(iii) advise on the membership of the selection panel, within the National Assembly's guidelines for appointments;

(iv) advise the selection panel on a shortlist of candidates for interview; and

(v) to report to the Assembly on the above.

20. The Committee was chaired by the Minister for Health and Social Services, Jane Hutt, with representatives of the other parties from the Health and Social Services Committee and a member of the pre-16 Education, Schools and Early Learning Committee.

21. It was announced in the Queen's Speech that a Children's Commissioner for Wales Bill would be brought before Parliament in the coming session.

22. On 7 December, Rhodri Morgan, First Minister, announced that Peter Clarke, Director of Childline Cymru, had been appointed as Children's Commissioner.

February 2001

23. The Children's Commissioner Bill was introduced to the House of Lords. It is currently awaiting report stage. For a summary of the Bill's provisions see Annex 2.

March 2001

24. Peter Clarke took up post.

May 2001

25. The Health and Social Services Committee will be considering draft regulations under the Care Standards Act to give effect to initial powers for the Commissioner.

KIRSTY WILLIAMS AM
Chairperson

30 April 2001

ANNEX 1

Care Standards Act 2000
Extract from the Explanatory Notes to the Act

"10. The Act establishes an office of the Children's Commissioner for Wales and sets out its functions and powers, which will extend to all the services for children regulated in Wales under the Act: children's homes, residential family centres, local authority fostering and adoption services, fostering agencies, voluntary adoption agencies, domiciliary care, the welfare aspects of daycare and childminding services for all children under the age of eight; and the welfare of children living away from home in boarding schools. The Commissioner's powers and functions include the review and monitoring of arrangements for dealing with complaints, 'whistleblowing' and advocacy; the examination of particular cases; and providing assistance, including financial, to a child in making a complaint or in other proceedings. These powers will also extend to children receiving services in other settings regulated under this Act, such as private hospitals."

ANNEX 2

Children's Commissioner for Wales Bill
Extract from the Explanatory Notes to the Bill

INTRODUCTION

1. These explanatory notes relate to the Children's Commissioner for Wales Bill as brought from the House of Commons on 8th February 2001. They have been prepared by the Wales Office in order to assist the reader of the Bill and help inform debate upon it. They do not form part of the Bill and have not been endorsed by Parliament.

2. The notes need to be read in conjunction with the Bill. They are not intended to be a comprehensive description of the Bill, so where a clause or a part of a clause does not seem to require any comment, none is given.

BACKGROUND AND SUMMARY

3. This Bill implements the policy of the Government and the National Assembly for Wales ('the Assembly') on establishing a Children's Commissioner for Wales ('the Commissioner') with a wide-ranging scope, which encompasses all children in Wales and different sectors and services. This policy is based on the recommendations of the Assembly's Health and Social Services Committee in its report 'A Children's Commissioner for Wales', published in May 2000. This was itself based on the results of the widespread consultation undertaken by the Committee, which appeared to show a consensus in Wales in support of such a policy.

4. The office of the Commissioner is being established initially by virtue of Part V of the Care Standards Act 2000 ('the Act') to reflect Sir Ronald Waterhouse's recommendation on the establishment of a Children's Commissioner in his report Lost in Care - The Report of the Tribunal of Inquiry into the abuse of children in care in the former county council areas of Gwynedd and Clwyd since 1974, (HC201) published in February 2000.

5. The Commissioner's functions under the Act extend to all services for children to be regulated by the Act: children's homes, residential family centres, local authority fostering and adoption services, fostering agencies, voluntary adoption agencies, domiciliary care, private and voluntary hospitals/clinics, the welfare aspects of daycare and childminding services for all children under the age of eight; and the welfare of children living away from home in boarding schools.

6. The Commissioner's functions under the Act include the reviewing and monitoring of arrangements by service providers for:

(a) dealing with complaints, for ensuring that proper action is taken in response to information regarding possible unlawful or dangerous activities, or their concealment ("whistleblowing"), and for making persons available to represent children's views and provide them with advice and support ("advocacy");

(b) the provision of advice and information;

(c) the examination, where the Commissioner considers appropriate, of the cases of particular children who are receiving or have been in receipt of such services;

(d) the provision of assistance, including financial assistance, and representation, in respect of proceedings or disputes or in relation to the operation of procedures and arrangements monitored by the Commissioner; and

(e) making reports, including an annual report on the exercise of his or her functions to the Assembly.

7. The power to require the provision of information and the disclosure of documents may be conferred by the Assembly on the Commissioner in connection with the review and monitoring of the activities specified above and for the purposes of examining particular cases or determining whether a report's recommendations have been complied with.

8. The Bill extends the scope of the Commissioner's role to bodies and persons operating in Wales which have statutory functions or provide statutory services in functional fields devolved to the Assembly.

9. However, the Commissioner's functions under Part V of the Act of reviewing and monitoring arrangements for complaints, for whistleblowing and for advocacy, relate specifically to regulated children's services (as defined in section 78(2) of the Act) and the Bill therefore restricts the extension of these functions to bodies and persons in Wales who provide direct statutory services to or in respect of children, and persons that provide such services on their behalf. This will concern primarily the education and training, health and social services sectors; and the main persons affected will be local authorities, in respect of their provision of education and social services, schools, further and higher education institutions, training organisations, health authorities and National Health Service trusts. The Assembly will also be one of the bodies subject to this function of the Commissioner.

10. The Bill confers on the Commissioner the power to review the effect on children in Wales of any existing or proposed legislation of the Assembly. The Bill also confers on the Commissioner the power to review the effect on children in Wales of any policy, or practice of, or service provided by the Assembly or any body or person listed in the Bill.

11. The Bill, in addition, provides that the principal aim of the Commissioner in exercising his or her functions is to safeguard and promote the rights and welfare of children.

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
THE LAW SOCIETY OF NORTHERN IRELAND

The Law Society of Northern Ireland (LSNI) welcomes the proposal to appoint a Commissioner for Children in Northern Ireland.

There is a clear need for an overview of services to and for Children provided by government and voluntary agencies with the power to comment at the highest level.

As regards Children before the Courts the issue of delay, creeping into the system is a matter which needs to be kept under constant review.

The Committee has already received comment from a wide cross section of consultees and so LSNI will highlight 5 areas, for which a Commissioner for Children should have regard.

1. There is a need to empower Family Proceedings Courts to appoint a Guardian Ad Litem to represent Children in Private Law Cases where there is a conflict of interest between a child and his/her parents. (LSNI in agreement with NIGALA).

2. LSNI considers that the concept of a cohesive and integrated family court system is desirable. This being an evolution of the Children Order system, where all matters involving children, including juvenile offending, would be dealt with in a distinct stream of courts with a distinctive culture (possible inquisitorial in spirit if not in fact). This will build on the specialist judiciary and lay magistrates and the LSNI children's Panel Solicitors all of whom are products of the Children Order.

3. The need for speedy implementation of the Recommendations of the Report of the Assembly's Health, Social Services and Public Safety Committee's into residential and Secure Accommodation for Children. This is the most pressing of issues.

4. The Commissioner's role should be an overarching one. Yet there needs to be investigatory powers, when all other remedies have been exhausted, the Commissioner should have the ability to report and to press for remedies for individual children and to recommend changes to the law to remedy problems and to plug gaps found in the system. LSNI would query the need for an amicus curiae role, as this is a duplication of the Official Solicitor's remit. Perhaps a review of services in this area is overdue.

5. The Commissioner would be able to make better use of multi-disciplinary opportunities throughout the various Agencies, enabling different and diverse skills to be used to consider issues and to plan, such as those on the Lord Chancellor's Children Order Advisory Committee.

CATHERINE DIXON
Member of The Law Society of Northern Ireland

25 April 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
THE NORTHERN IRELAND BRANCH OF THE BRITISH ASSOCIATION
OF SOCIAL WORKERS (BASW (NI))

BASW(NI) is the largest association representing social work and social workers in England, Scotland, Wales and Northern Ireland. There are currently 400 members in BASW(NI).

1. Introduction

"For young people's status to significantly improve, change is necessary in all areas - in the private sphere of the family as well as in public institutions, for example nurseries, schools, courts and hospitals."

Willow (1996): 65

BASW (NI) Voices In Practice Group for Family & Child Care endorses this statement, and welcomes the government's acknowledgement of the need for change as evidenced by their decision to appoint a Commissioner for Children. In light of this decision our members were asked three main questions in relation to the Commissioner's role.

  • What hopes and aspirations would you have in respect of the Commissioner's role?
  • What power, duties and responsibilities should the Commissioner have?
  • What concerns would you have in relation to establishing a Commissioner for Children?

Two main themes emerged from the subsequent responses and discussion which this paper will address. Annex I contains the full list of written comments received.

The first theme relates to the issue of rights, children's rights in particular, and the second theme relates to the management of change.

2. Children's Rights: Current Issues and Concerns

A range of individuals and institutions have within their power the means to help or hinder young people express and claim their rights. Parents, for example, are still entitled by law to hit their children and education legislation maintains that the consumers of education are parents, not young people.

The United Nations Convention on the Rights of the Child (UNCRC) is the first international treaty that recognises children's rights as separate from and additional to the human rights of adults. The implementation of the Human Rights Act 1998 has resulted in greater awareness of rights generally and in relation to children in particular it has led to increasing emphasis on the UNCRC.

Have we gone too far with children's rights?

While some adults may feel that children's rights have gone too far, there is little evidence to suggest that this is the case. Twenty years ago in Sweden, the smacking of children became illegal. The experience in Sweden during the last twenty years demonstrates the following:

  • No increase in prosecution for parental assaults on children since the ban on smacking.
  • No increase in compulsory social work intervention in families or removal into care.

In fact, Sweden shows the strongest decline in prosecutions for parental assaults of children amongst parents in their twenties who were themselves brought up without smacking. There is also a marked decline in "out of family" placements of children and of compulsory forms of intervention. Overall, this is a positive picture, with greater use being made by parents of consistent, positive and effective forms of discipline as a consequence of the ban. The Swedish experience illustrates how a change in law can result in changes in attitudes and behaviour.

3. The Impact of Change

Change and diversity are now both major characteristics of life in the 21st century. This has impacted significantly on children. They seek more independence and increasingly want to negotiate family decisions that affect them. They are without doubt active participants in a world which will continue to experience increasing change. This is well illustrated by the energy and focus committed to advertising campaigns which target children and young people. The draft Northern Ireland Executive programme for government states that

'we will combat social exclusion and poverty, with a particular emphasis on children.'

In order to achieve this aim, it is vital that children's views are heard, their contribution to society valued and their role as citizens recognised. This will require new thinking and closer working relationships between and within relevant bodies. The key players, that is, children, government departments, statutory and voluntary agencies and research communities must have the opportunities to engage in a process which:-

i. promotes debate about important issues including education, employment, criminal justice, parental responsibility, children in need, children in public care, the environment, transport, housing and health; and

ii devises a strategy to lead the way in encouraging families and communities to value children.

The role of the Children's Commissioner should be to check that all of this takes place with the emphasis being on the need to ensure that children are consulted in a meaningful way and that they enjoy their childhood, having experiences which enable them to reach their potential and prepare for adulthood.

4. Managing the Change

Most government departments impact on children. Children's services include the universal and the targeted, the supportive and the custodial.

In 1998 the Inter Departmental Group, representing the Department of Health & Social Services, the Department of Education for Northern Ireland and the Northern Ireland Office, provided guidance to Health & Social Services Boards on the development of multi-agency Children's Services Plans.

Since then, planning frameworks have been established which have identified various priorities according to statutory requirements and assessed need within each Health & Social Services Board area. It is clear however that agencies will struggle to achieve Children's Services Planning objectives without an overall coherent policy direction which is realistically supported by the relevant government departments.

Moreover, account needs to be taken of the regional, national and international perspectives. It is at this broader, strategic level where a Commissioner would be most helpful. They could identify for example, not simply the main current issues for children and young people, but also future trends. How the various agencies are collaborating with each other in order to achieve the overall aim of improving life for children, could be addressed in a yearly report provided by the Commissioner.

The value of any Commissioner lies in their ability to see the "big" picture and to draw attention to both the positive and negative aspects of practice. A previous paper provided for the committee of Health, Social Services and Public Safety illustrates the system of Family & Child Care as a child's mobile, with interconnecting parts which may appear quite different, but usually have a common theme. Movement or change in one part of the mobile will impact on and influence the position of the others. A Commissioner for Children needs to understand how these complex systems work and what the implications of change might be.

As well as the government departments, Boards, Trusts, Voluntary and Community agencies, there are the internal systems within each of these, for example the representation and complaints procedure for each Trust, (see Annex 2). How the Commissioner relates to these systems needs careful exploration, so that his/her role enhances rather than competes.

5. Inclusiveness and Participation

It is well recognised that change will only effectively take place if the people affected by the change feel that they are meaningfully involved in the process. As the Chinese proverb states:

"Tell me and I'll forget it
Show me and I may remember
Involve me and I'll understand"

The role of social workers is founded on the principles of inclusion and participation. The principles of social work practice include:

  • Knowledge, skills and experience used positively for the benefit of all sections of the community and individuals.
  • Empowerment of clients and their participation in decisions and defining services.
  • Collaboration with others in the interests of clients.

Social workers and social work have built up a great deal of experience and knowledge in the area of service user involvement. A Commissioner for children must draw on existing knowledge and expertise in order to ensure that not only are children involved in the decision making processes, but that their involvement is as meaningful as possible.

6. From Information to Participation

In 1971 Sherry Arnstein wrote an influential article about citizen participation in public planning schemes. Her ladder of citizen participation remains a popular and useful tool. There are eight rungs on Arnstein's ladder ranging from manipulation to citizen control. An adaptation of Arnstein's ladder was produced by Roger Hart in 1992. His ladder specifically relates to young people's participation (see Annex 3).

In relation to the Commissioner for Children the ladder of participation may be used in a variety of ways. The Commissioner may use it to evaluate the level of young people's participation achieved by the Commission itself; also governmental departments, agencies and even individual workers may use it to evaluate their overall work, or particular projects in which young people are involved.

7. Conclusion

The overall aim of a Commissioner for Children should be to listen to, think about and act more effectively for children. They should be guided by the principles of the UNCRC namely:

  • All children are entitled to basic rights without discrimination.
  • The best interests of the child should be the primary concern of decision making.
  • Children have the right to life, survival and development.
  • The views of children must be taken into account in matters affecting them.

HELEN EAGLESON
Chair Family & Child Care Voices In Practice BASW (NI)

25 April 2001

Annex I

1. What hopes and aspirations would you have in respect of the Commissioner's role?

That the Commissioner will be a positive influence on representing the views of children and young people. That he/she could help pull together other agencies already representing young people to highlight the needs of young people regarding legislation.

  • Act as an independent watchdog for the rights of all children living in Northern Ireland.
  • Take cases on behalf of children where their rights are denied.
  • Promote Children's Rights.
  • Revise profile of children's issues.
  • Develop good practice guidelines and models.
  • Consistent communicative linkage with all bodies and groups working with or concerned about children, especially disadvantaged children e.g., Looked After Children.
  • Excluded children.
  • Direct access to/with children/young people.
  • Self-evaluation built into the role to ensure ongoing relevance.
  • Consistent networking/communication between Commissioner and agencies involved with children.
  • A role which would be experienced by young people as genuine advocate - a 'Voice for them' in situations where they feel vulnerable or powerless.
  • Ensure rights of children are promoted, protected and monitored effectively.
  • Ensure children are consulted and involved in matters of policy, planning and implementation of relevant services.
  • Fully independent of government.
  • Well resourced and linked to allied services.
  • Ensure children's voice is listened to at local and national levels.
  • Ensure there is an effective complaints procedure, with rights of redress through an independent and accessible system.
  • Communication could enhance present aspirations and bring some to reality.

2. What power, duties and responsibilities should the Commission have?

The Commissioner should be more than just a figurehead.

He/she needs to be seen as a powerful voice regarding the needs of young people and increasing his/her profile in society. To sit on established public bodies promoting the voice of young people. To have the ability and legislation to pursue cases perhaps where others have come to an impasse.

  • Consider and make appropriate representation on any matter affecting children and their rights.
  • Powers necessary to undertake effective investigations.
  • Power to take cases where there has been a denial of Children's Rights.
  • Power to require the provision and disclosure of documents in connection with functions.
  • Must have resources to carry out functions effectively.
  • Should be able to investigate legislation for children:

(a) its effectivess/relevance;

(b) equity geographically of services to children;

(c) exploitation of children e.g., work situations;

(d) statutory provision for children's educational needs; and

(e) any situation where children can be oppressed or their human rights denied.

  • Statutory advisory function to the review/formulation and evolution of new policies/procedure.
  • Identification of resources necessary.
  • Ability to highlight and sanction bodies which flout legislation or policies.
  • Monitor and review policy and practice in relation to children's services.
  • Oversee inspection and regulation of children's services, can assess and advise on improvements.
  • Power of inquiry into any matter affecting children in any agency or organisation.

3. What concerns would you have in relation to establishing a Commission for Children?

That the role would be diluted and of no substance. That the Commissioner would not have an appropriate range of skills or experience to fulfil the role. He/she would need proper back up and administrative support, budget etc., to take forward cases - he/she needs clout!

  • Ensure that the role dovetails with other bodies i.e., the Ombudsman, Equality Commission etc.
  • Commissioner needs to be accountable but also independent of government.
  • That the commissioner would have 'teeth' to ensure accountability particularly from Health and Social Services Trusts.
  • That the role would not have sufficient authority and could be easily disregarded.
  • That it would be inappropriately resourced.
  • That it would be unrepresentative or tokenistic in character.
  • Lack of resources.
  • Too narrow a brief - not just looked after children for example.
  • Weak powers.
  • Tokenistic or "toothless".
  • Role is "politicised".

4. Any other comments?

Need for a co-ordinated approach re the Commissioner already appointed in Wales and possibly one later in England.

NIFCA welcomes the proposal for a Children's Commissioner.

  • It would be useful to set up local and regional fora of children's groups as sounding boards for the Commissioner.
  • Educate, inform and raise general awareness in society generally, especially with parents and teachers, youth leaders and employers.
  • Develop a positive partnership with the media to shape and influence the kind of stories written about children.

Despite reservations, something which should be important to the progress of children's rights, we all must look to our own personal practice and that of our agencies and those appointed to promote children's welfare to ensure we also advocate and promote those rights.

Annex 2

Annex 3

REFERENCES

Arnstein, S. (1969) A Ladder of Citizen Participation in the USA, Journal of the American Institute of Planners, 35, 4 216-24.

Hart, R. (1992) Children's Participation from Tokenism to Citizenship. UNICEF.

Willow, C. (1996) Children's Rights and Participation in Residential Care. NCB.

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
THE WESTERN AREA CHILDREN AND YOUNG PEOPLE'S COMMITTEE

1. Children's Services Planning

Children's Services Planning was introduced in Northern Ireland in September 1998, by the Inter-Departmental Group on Children in Need. The Group represented the (then) Department of Health & Social Services, the (then) Department of Education, and the Northern Ireland Office.

Children's Services Planning is needs led, strategic, inter-agency planning for children and young people. It is mandated by Law (The Children's Services Planning Order, Northern Ireland, 1998), which requires each Health Board area to have in place a "Children and Young People's Committee", which consists of senior managers in the following key service areas:

  • Health and Social Services
  • Education
  • Probation
  • Police
  • The Voluntary Sector.

At the heart of Children's Services Planning is the concept that children and young people who present as "troubled", experience difficulties in several areas of their lives (difficult family circumstances are often linked to poor educational attainment and to emotional or psychological difficulties, poor school attendance can be linked to youth offending, and so on). If the needs of children and young people are closely linked, it is imperative that the services which exist to meet these needs are also closely linked.

The role of the Children and Young People's Committees (which are Chaired by the Director of Social Care for each Board) is to co-ordinate three year inter-agency strategic plans, which are reviewed each year. Northern Ireland is currently in its first phase (1999-2002) of Children's Services Planning.

The core constituency of the Children's Services Plan is made up of children and young people considered to be In Need. In the Western area, the Plan has focused on nine areas.

  • Children and Young People with a Disability
  • Child Protection
  • Early Years
  • Youth Justice
  • Children and Young People in Care ("Looked After")
  • Children and Young People who Leave Care
  • Homelessness - Families and Young People
  • School Exclusion
  • Child and Adolescent Mental Health.

In addition, the Western Area Children's Services Plan has addressed a number of other important themes, including:

  • Children and Young People in the Travelling Community
  • Suicide Prevention
  • Children and Young People's Health Strategy
  • Substance Abuse.

2. Participation by Young People in Planning

The Western Area Children and Young People's Committee has recognised the importance of listening to, and utilizing, the experiences of young people who have been at the receiving end of services. Such experience not only assists in the recognition of need, but also helps identify what has, and what has not, worked. In September 2000, the Western Area Children and Young People's Committee hosted workshops, in Fermanagh and in Derry, inviting a range of organisations working with young people to help them build a channel which would enable young people to become involved in the planning process. The following messages emerged from this exercise.

What Works - Young People's Views

  • Young people need to be treated as independent and informed. Equal treatment is essential.
  • The process of involving young people needs to be able to 'connect' with their interests/preferences (need to be entertaining).
  • The environment needs to offer personal/emotional safety.
  • There needs to be acknowledgement that young people's opinions matter.
  • There is a role for adults to provide information that young people can then process. Good information is important.
  • The adults need to be the 'right' adults - experienced by young people as trusted / helpful / committed.
  • Practical exercises can be very powerful when exploring issues.
  • Young people are best suited to talking to the young people.
  • There needs to be flexibility re time (time to suit young people).
  • Activity related events are good, and time to socialize is important.
  • Young people need to be able to exercise choice and have options.
  • Young people need to be clear about tasks and outcomes.
  • The language used (by adults) needs to be clear, simple, free of jargon.
  • Young people need to be comfortable with the place.
  • Open selection/election is important.
  • There is a need to create/facilitate environment within which young people can talk to each other about the difficult areas.
  • Schools offer possibilities for involvement of young people in ideas about planning (Could Children's Services Plan feature in Personal and Social development part of the curriculum?).

What Doesn't Work - Young People's Views

  • Condescending adult attitudes - being 'talked at'.
  • Role not clearly understood.
  • Wrong time.
  • Adults trying to control the process (don't listen).
  • Lack of trust in the adults involved.
  • No preparation or groundwork.
  • No choice.
  • Lack of information.
  • Lack of feedback/evaluation.
  • When you are afraid to say what you really think.
  • When we don't really want to get involved (the exercise needs to be seen as relevant).
  • Being placed on committees.
  • Feeling that we have been labelled/stigmatised in advance.

What Works - Adult Views

  • Clear mandates to young people are essential.
  • Clear agendas are necessary, but the process needs to be facilitated by young people.
  • Adults need to accept that youth led work carries risks.
  • It is important for adults to have the ability to 'translate' messages from young people.
  • Working in the area of policy can be very frustrating for young people, but this is a good learning experience.
  • There is a need to think creatively using different media to engage young people.
  • Young people need feedback about the impact of their work ('making a difference' is important). The view was also expressed that the frustration experienced by young people in working in the area of policy (encountering 'brick walls') can be counter-productive for them.
  • Young people, with good support, can represent their views and attitudes on committees.
  • Youth Clubs/Youth Councils provide a natural point of contact, and should be developed as part of the consultation process.

3. WACYPC Steering Group on Young People's Participation

The Western Area Children and Young People's Committee subsequently heard a presentation from a number of the young people involved in these workshops in December 2000, and decided to create a Steering Group for Young People's Participation, which would be co-chaired by a member of the WACYPC and by a young person, which would have a majority of young people as members, and which would be supported to develop and implement ideas on how to extend the input of young people in need.

This Steering Group has now met on two occasions in 2001. The Group consists of 10 young people, representing 5 organisations:

  • Fermanagh Shadow Youth Council
  • The Nucleus Centre, Derry
  • Irvinestown Youth Club
  • The Young Independents Group, Derry
  • Extern West.

There are plans to extend membership of this Group to include representation from the Youth Service of the WELB, which is currently developing Youth Forums in each Council area.

EAMON McTERNAN
Principal Social Worker

29 March 2001

Written Submissions

COMMITTEE OF THE CENTRE
INQUIRY INTO THE PROPOSAL TO APPOINT A COMMISSIONER
FOR CHILDREN FOR NORTHERN IRELAND

WRITTEN SUBMISSION BY:
WESTERN YOUNG PEOPLE'S STEERING GROUP

In addition to their presentation on 4 April 2001 the Western Young People's Steering Group identified issues and problems which they considered affected every young person in Northern Ireland. These issues and problems together with suggested solutions are outlined below:

1. What Issues/Problems Are About For Young People Today In N.I?

Peer pressure; self esteem (lack of); alcohol; drugs, family problems, teenage pregnancy; abortion; contraception; emotional distress; domestic violence; depression; homelessness; poverty; policing problems; social exclusion; school exclusion; sexuality/sexual harassment/rape; invasion of privacy (CCTV); self harm; suicide; images to be thin e.g. girls in magazines; lack of facilities/youth venues; disabilities; discrimination; jobs/Employment (fair wages- not); sectarianism/paramilitaries; religion; relationships; residential care/social workers; bullying; poverty; health issues; street violence; and domestic violence.

2. How Do The Issues Mentioned Above Effect Young People?

Depression; suicide; criminal record, young offenders, prison; social exclusion - sexuality, disability, etc; teenage pregnancies/abortion; possibility of leaving home - homelessness; breakdown in communication; domestic violence/abuse; demonising young people; low self esteem - alcohol, drugs, media, education, domestic violence; beat up; excluded from school; getting put in a 'home'; shop-lifting; have a Social Worker; debt; lack of respect; and self harm.

3. What Do Young People Need To Feel Supported?

What Qualities Are Needed From Those Who Are Supporting Young People's Need?

Understanding/knowledge of young people; respect; experience/street wise; 'Modernise' training & skills; young people addressing young people; empathy/sincerity; good listener; open-minded & non-judgemental; friendly/approachable; dedication/interested; secure situation/environment; contacts (know who can help you if they can't); accessibility (times, places, etc.); trustworthy; discreet; relaxed - at the young person's pace; communication skills - know how to talk; encouragement/representation; friend (someone like); confidentiality; more Youth Workers (good); funding for alternative groups/youth workers (More 'Nucleus'!); relaxed environment; safeguards; back up person; child protection; sign-posting; and someone who has been through the same thing as you.

4. How Do You Suggest The Above Problems Can Be Solved?

More funding - for health projects; for social projects; provide more facilities; contraception should be more widely available; proper education - about all issues; in schools, youth clubs, residential units; drop-in-centres, health centres, churches; people with proper skills - being able to talk to and work with young people; relaxed environments - suitable for young people; more up-to-date Social Workers; more companies coming to N.I. to provide more jobs; more support groups for sexually harassed; more male support groups; listen to problems and challenge them; talking Forum good public relations; support groups/organisations; change your attitude; changing attitudes of others - change views older people have of young people; start asking questions; contraception; education; opportunities more communication; be sincere; reassess help in health/ social sector; change - homophobic, racist, sectarianism attitudes; empower young people on their rights; more money opportunities; and higher taxes for higher incomes.

Western Young Peoples Steering Group

April 2001