Ministry of Environment, Lands and Parks and Ministry Responsible for Multiculturalism and Human Rights
British Columbia's Response to United Nations Review Committee on Rights of the Child
General Measures of Implementation
1. In the spring of 1994, an international conference on the Convention was held in Victoria and attended by professionals, parents and young people from many countries. This venue provided an opportunity for information, debate and discussion and is followed up in British Columbia by a voluntary organization titled "First Call". The name denotes that children and youth should have "first call" on society's resources to ensure their needs are met by society.
In March 1995, British Columbia hosted three linked conferences on the health of youth: the Society of Adolescent Medicine, the International Association of Adolescent Health, and the first World Youth Health Assembly, "Youth for Youth Health" (500 youths from all continents and many nations). The three conferences held conjoint sessions and there was considerable interchange between the youth and adult professionals on youth health issues and remedies that might be undertaken. A follow-up conference will be held in Mexico City in 1999 to review actions taken in the interim.
Following from the Youth for Youth Health Theme of the World Youth Health Assembly the Ministry of Health is planning to facilitate the organization of youth to participate in health care reform and decisions through follow-up activities to the conference. A voice for youth in health care planning and decision making will be the result.
General Principles
5. British Columbia has recently enacted legislation which will establish an independent office reporting to the legislature, the Office of Advocacy for Children, Youth and Families. The Advocate and staff will provide training and support for the development of natural advocacy for young people and their families and, through formal channels, will advocate on their behalf with government and government funded agencies. An annual report to the Legislative Assembly will highlight the needs of children and youth and recommend remedies to government.
8. The Child, Family and Community Service Act includes the guiding principle that, "the child's views should be taken into account when decisions relating to a child are made"; the service delivery principle, that "families and children should be informed of the services available to them and encouraged to participate in decisions that affect them"; and, under Best Interests of the Child, the Act states that the child's views must be considered.
The Ministry of Health has developed a policy circular which addresses the issue of consent for health care for minors and has been widely circulated to health professionals and health associations. In British Columbia, consent for health care by minors is governed by common law rather than by specific legislation which defines an arbitrary age limitation. The test is the extent o which the young person appreciates the likely consequences of the procedure. However, consent of medical procedures in hospital for young persons is the responsibility of parents or guardians.
Civil Rights and Freedoms
10. Corporal punishment is expressly forbidden in community agencies funded by contract by government. All written materials by the Ministry of Health to parents and professionals expressly recommend against the use of corporal punishment. As well, practice guidelines for public health nurses, mental health workers and others who routinely work with children and families direct them to counsel nonphysical disciplinary intervention.
Education, Leisure and Cultural Activities
21. Child and Youth Mental Health Services has established local referral practice guidelines between each mental health centre and school district which include addressing the problems of young people who might be considered for suspension from school. Several joint projects have successfully addressed the problem of suspensions through training in conflict resolution and the provision of special services to young people, family and school.
However, the School Act still has provision for suspensions under the control of the School Medical Health Officer which are directed towards young people who may be a danger to themselves or others. Health facilities with a residential program, eg. specialized hospitals, children's hospitals and youth forensic facilities, provide as part of their program schools or classrooms which are funded by the Ministry of Education to ensure that schooling is continued.
Special Protection Measures
27. British Columbia also provides supportive treatment and rehabilitation services for child victims of abuse through various programs. There are also specific programs for adults who were abused as children in residential facilities funded by government.
28. Recent Governmental activity has focused on improving the situation of street youth, many of whom are homeless. These include programs to deal with alcohol abuse and the provision of counseling services.
Housing programs also work to provide affordable housing for inner-city youth with no support or alternatives to the street; very young single parents who require support to develop parenting skills, complete their education or begin job training; and women, with or without children. Specific programs are also dedicated for aboriginal people. Women with children who are required to leave transition houses and who do not have an alternative safe housing situation are given special priority for social housing.
ALSO SEE ATTACHED FROM MINISTRY OF SOCIAL SERVICES AND MINISTRY OF ATTORNEY GENERAL.
Attachment
International Human Rights Obligations
During 1992-1994 the number of child protection investigations and apprehensions indicated a decline which is perceived as the result of a number of effective family support and other preventative programs the Ministry of Social Services (MSS) implemented during this period.
The Child, Family and Community Service Act (Bill 46) was passed in 1994 and will be proclaimed in the Fall, 1995. This Act replaces the existing 1981 Family and Child Service Act and provides a more flexible, responsive, inclusive, and accountable approach to delivering services to children and their families. The new Act broadens the definition of children in need of protection and allows for earlier intervention and a greater emphasis on crisis prevention.
Bill 46 incorporates many of the recommendations from the Aboriginal members of the Community and broadens the definition of Aboriginal children and families. It gives Aboriginal communities a greater role in planning and delivering services to Aboriginal children and families.
An unique feature of Bill 46 is that it must be administered and interpreted in accordance with seven Guiding principles which were agreed upon by families, advocacy groups, care-givers, service providers, community and MSS. There are also four service delivery principles which apply to the provision of services. Both the guiding and delivery principles ensure protection and well-being of the child by requiring that in decision-making process the best interests of the child must always be of paramount consideration.
Under the Act, a child is a person under 19 years of age and thereby it includes "youth" which is defined as a person under 19 years. The child has the right to be treated with dignity and respect, and to be listened to. The planning of implementation of Bill 46 is currently underway. During the pre-implementation period, staff must work within the existing legislation but, whenever possible, should act consistently within the spirit of the new legislation.
In 1994 another milestone in the area of child's Rights was laid by proclaiming the Child, Youth and Family Advocacy Act (Bill 45). Bill 45 creates an officer of the Legislature with direct responsibility to advocate on behalf of children and families receiving services under the current Family and Child Service Act and also under Bill 46. The Advocate will also promote and coordinate community advocacy services.
Issues
Non-Discrimination; Best Interests;
Children Belonging to a minority or an Indigenous Group
The intent of Bill 46 is to protect and promote the best interests of the child irrespective of the child's cultural, racial, linguistic and religious heritage. In the case of determining the best interests of an aboriginal child, the importance of preserving the child's cultural identity must be considered.
The "best interests" clause, which applies also for the child in care, is fairly comprehensive as it includes the child's safety, physical and emotional needs, level of development and the importance of the continuity in the child's care.
The Ministry's goal of ensuring the maximum safety of children while maintaining the children's cultural bonds is consistent with the recommendations of the Community Panel Report and with the United Nations Convention on the Rights of the Child.
MSS is committed to ensuring the safety of Aboriginal children and maintaining them within their Aboriginal community whenever possible. Bill 46 clearly states that the cultural identity of Aboriginal children must be preserved. It places greater reliance on families and extended family as a source of support for children at risk, and as Aboriginal communities becomes safer and more nurturing, they will be able to provide foster and adoptive homes for all their children.
The legislation also focuses on strengthening MSS's working relationship with Aboriginal communities and introduces less adversarial methods for resolving child protection issues. For example, it enables the Minister to enter into agreements with Aboriginal Nations, including agreements under which First Nations and Aboriginal communities could take on the responsibility for the administration of all or part of the Act.
Additionally, efforts will focus on development of culturally appropriate, community-based services to address the historical impact of child welfare service delivery in Aboriginal communities.
Adoption
The Adoption Act (1957) needs to be updated to reflect changing societal attitudes and values. The Adoption Legislation Review commenced in February 1993 following recommendations from Community Panel Reports and addressed all aspects of adoption, including the regulation of private adoptions.
Currently, a new legislation is being drafted.
The majority of infants adopted in British Columbia are adopted privately. Adoption applicants must be 19 years of age or older, residents of British Columbia, and be single or legally married. The Adoption Act has never excluded applicants solely because of their marital status or sexual orientation. Successful adoptions are only completed after a thorough home study and an order by a Supreme Court Judge.
There is a strong public demand for access to identifying information which will give the adult adoptee or the birth parent greater control over the reunion process and the ability to undertake their own searches. MSS offers a range of "openness" in adoption placement. The requests for such openness vary greatly: the sharing of non-identifying information and pictures, non-identifying, face-to-face meetings between birth and adoptive parents, the ongoing sharing of information through an intermediary, or identifying information is shared and the birth parent my play an active role in the child's life.
Historically, in British Columbia, a disproportionately high number of Aboriginal children have come into the Ministry's care for adoption placement. Almost 30 percent of children placed by MSS for adoption in the last decade were of Aboriginal heritage, while only 5 percent of B.C.'s total population is of Aboriginal descent.
While MSS assists Aboriginal communities to develop and strengthen their community-based child and family support services, it remains committed to ensuring that Aboriginal children will not be placed at risk. Where an Aboriginal child cannot be cared for within his/her own cultural community, long term non-Aboriginal placements are being developed with the involvement and the support of the Aboriginal community.
MSS is working with the B.C. Federation of Foster Parents, the Adoptive Parents Associations and the Aboriginal community to develop stable plans for Aboriginal children as an alternative to adoption.
Respect for the views of the Child
According to section 4(e) of Bill 46 the child's views must be considered in determining the best interests of the child.
Confidentiality of Information or Privacy Act
A social worker uses standardized Ministry forms to collect confidential information on the child to share with the child's prospective caregivers. Section 24 of Bill 46 requires that a person must not disclose, or be compelled to disclose information obtained in a family conference, or mediation except if the disclosure is necessary for a child's safety or as required under sections 75, 76 , 78 or 79 of the Freedom of Information and Protection of Privacy Act.
Contact with Parent(s)
The Government maintains that Families are the best resource for a child and is committed to supporting and responding to the needs of children and their families. Bill 46 states that to determine the best interests of the child the quality of the relationship with the parent must be determined.
The Family Preservation Program is one of a range of Family Support Services. Removal of a child from their family should only occur when all other alternatives have been exhausted. One or more support services may be offered to families with the immediate goal of preventing out-of-home placement of the child. In cases where a child can not live with his or her family of origin, Bill 46 directs that placement within the child's extended family and community be considered before all other placement options.
However, if the child has been or is likely to be, physically or emotionally harmed or sexually abused or exploited by the parent, the child must be protected.
Support for Single Parent Families
Section 5 of Bill 46 states that agreements with a parent may be made to provide services to support and assist a family for a child. The objective of family support services is to reduce the number of children coming into care by assisting families to acquire skills, achieve specific goals, and address factors which affect their capacity to parent.
Bill 46 outlines various emergency scenarios (such as exposed to physical/emotional harm, sexual abuse; lack of necessary health care; safety and well-being are endangered) where the child may require protection or must be protected.
Children in Conflict with the Law
Section 15 of Bill 46 deals with situations where a child is in conflict with law. If the child is under 12 years of age, a police officer may take charge of the child and deliver him/her to a uarent. In the event the child has killed, assaulted or endangered another person, the case must be reported to a director while in any other situation the case may be reported to the director.
Child's Accessibility to Social Security System
Any person, including youth under the age of majority, has the right to apply for income assistance benefits. MSS, however, is required to ensure that children and youth under the age of majority and without guardians receive adequate care and support. If a youth over the age of 17 years applies for assistance and has no parent able and/or willing to provide support, and the youth meets the income assistance criteria the youth would then receive benefits.
If a youth under the age of 17 applies for income assistance, the Ministry treats this as a child welfare issue and examines the family situation. If appropriate, services and support are offered to reunite the family. If reunification is not possible, other supports such as in-care services, financial assistance, parental financial support, and alternate care arrangements with relatives are explored. As of December 1994, 250 youth under the age of 17 years received income assistance. Thirty-four of these youth are single parents.
At this time, inter-ministry discussions are underway to ensure that MSS provides income support services to youth ages 15 to 18, while youth aged 19 to 24 would receive training allowances through the Ministry of Skills, Training and Labour.
Youth have been targeted as a strategic objective in the overall work of government.
Incidence of suicides among Aboriginal Children
In Canada, the teenage suicide rate among the Aboriginal youth is higher than the suicide rate among the non-Aboriginal youth. In some Aboriginal communities, teen suicide has reached epidemic proportions. In order to address all aspects of teen suicide among Aboriginal youth, including developing preventive strategies, MSS has entered into working relationships with the Department of Indian Affairs and Northern Development, the Federal Indian Health Branch, and other Provincial Ministries.
Rehabilitation or recovery of Child victims of Abuse or Neglect
The Ministries of Social Services and Attorney General have launched new initiatives to protect children from known abusers. These initiatives include mandatory criminal record check legislation, a brochure which provides guidelines to assist parents in selecting caregivers and programs for children, and a child abuse prevention handbook for employers and volunteer coordinators.
MSS operates a province-wide After Hours Program to receive reports of child abuse and requests for service when District offices are closed. The After Hours Program consists of the Zenith 1234 Helpline, the centralized Provincial After Hours Line and a local response capacity in each community of the Province. The Zenith 1234 Helpline is a toll-free 24 hours a day service for children. The purpose of the Zenith Helpline is to provide protective services to children by responding immediately to children at imminent risk of harm.
A new Child Protection Consultation Program is being introduced to improve MSS's response in complex and critical child abuse and neglect cases. The specialized support will be provided by a team of pediatricians, psychiatrists, child psychologists and hospital social workers. Through training, education, and research initiatives, the team is expected to make a vital contribution to the ongoing development of assessment and treatment approaches to child abuse and neglect.
Children Living/Working on the Street
Children in Situations of Exploitation
The number of younger street youth has increased in recent years. Vancouver has the largest concentration of street youth in British Columbia. The Vancouver Action Plan was introduced in November, 1994 with a budget of $1.98 million. It consists of resources and services such as a safehouse for youth under 16 years of age, information, detox, referral, repatriation, housing registry and other support services. The program supports the development of local resources and services for Vancouver's street youth, particularly those who are victims of the sex trade.
The Ministry's Reconnect Program is aimed at 12 to 18 year olds and is offered in 33 communities across the Province. The purpose of the Program is to assist street youth at risk to reconnect with their families and/or leave the street for a healthier and safer lifestyle. Referrals to the Program are made by the police, probation officers, and street workers.
This community-based Program can provide a whole range of services, including life skills training, counselling and referrals to appropriate services. A Reconnect Program directory has been completed, and an electronic system to connect all the Reconnect Programs in the Province is in the planning stages. As well, new policy and a plan to produce a consistent recording and tracking process for the youth served by the Program is being developed. In 1994/95, approximately 1,200 youth were assisted by this program.
MSS has taken the lead role in the development and implementation of immediate and long term strategies to address the increasing problem of sexual exploitation of children and youth in British Columbia. The Ministry is committed to the development and implementation of policies and procedures that have as a primary consideration the protection and safety of children.
The Children of the Night Program is considered very successful in assisting sexually exploited teens and children other programs and services for youth are currently being reviewed by the Ministry.
The Rehabilitation Resources Program was designed to meet the needs of students who have dropped out of school or are having difficulty in school for social and/or emotional reasons. Students are assisted to acquire the academic or life skills they need to re-enter the school system or further their training or employment.
HIV Infected Children
The Ministry plays a central role in assisting both the infected child-in-care and their caregivers. Assistance must be given to caregivers to access up-to-date medical information regarding the care of children who are or may be HIV positive. It is expected that youth-in-care also receive HIV+/AIDS education where available through their schools, the public health system, and other related community agencies. If this service is not available, the Ministry and/or the caregiver will ensure that a HIV+/AIDS awareness program is provided for the youth-in-care.
MSS is currently working with Progressive AIDS Research and Information Society and the B.C. AIDS Secretariat on piloting an AIDS awareness program that could be accessible to group homes.
Province of Ministry of
British Columbia Attorney General
Policy and CommunicationsMEMORANDUM
April 25, 1995
To: Catherine Poole
Policy Advisor
Legislation and Intergovernmental Relations
Ministry of Environment, Lands and Parks
Re: Issues Related to Convention on the Rights of the Child
Regarding your memo of April 3, 1995, Jacquie Nelson asked me to provide you with some information on Issue #14 - further information on efforts to ensure single parent families receive adequate support for their children. Here is a brief summary of family law initiatives which are relevant to that issue:
Child Support Formula
The Federal/Provincial/Territorial Family Law Committee presented its report on child support to the ministers responsible for justice in January, 1995. The ministers released the Report and Recommendations on Child Support to the public on January 25, 1995. The report is the result of 4 years of research, analysis and consultation undertaken to address the wide-spread dissatisfaction that has been expressed over child support awards. The report recommends adopting a child support formula for determining child support. The formula recommended would raise the level of child support awards.
We will review the report in detail and analyze the implications for B.C. of implementing the recommendations contained in the report. Since the formula recommended in the report uses the current income tax treatment of child support parents, it will not be possible to make any final decisions regarding the formula until the income tax issue is resolved by the federal government.
Enforcement of Maintenance
The Directors of Maintenance Enforcement from the provinces and territories and Ministry of Justice staff developed a National Support Enforcement Strategy which was included in the F/P/T Family Law Committee's report on child support. Initiatives recommended include exchange of information, improved inter-provincial cooperation. research and public awareness.
Earlier this year an agreement was made that provides all Canadian jurisdictions with access to motor vehicle information through the Interprovincial Records Exchange database. This will assist in locating people who default on child support payments.
In April, 1995, the Directors of Maintenance Enforcement met to review the National Support Enforcement Strategy and to develop a work plan for the coming year. Six major tasks were identified and committees were formed to recommend ways to meet the goals of the Strategy.
In B.C., in July, 1994, the legislature passed amendments to the Family Maintenance Enforcement Act to increase the consequences for people who do not make their maintenance payments and to make administration of the Family Maintenance Enforcement Program (FMEP) more efficient. Among the amendments which became effective April 10, 1995, is one which permits the court to order a company or person associated with a defaulter to file financial information or appear in court. This will help to reach self-employed people who default on maintenance payments by making it more difficult for them to hide income and assets behind corporate structures. Other provisions which have not yet come into effect will speed up the process for filing new orders with the FMEP and will permit interest to be charged on overdue maintenance payments.
An amendment to the Family Relations Act which comes into effect on July 1, 1995 will make it easier for a separation agreement to be filed with the court by eliminating the need for the spouse's consent to have the agreement filed. Once filed, the agreement can be enforced in the same way as a court order, including being filed with and enforced by the FMEP.
I hope that this information is what you need. If you have any questions, please call me to discuss them.
M. Jill Dempster
Senior Policy and Legislation Analyst
c. Jacquelyn Nelson
Province of Ministry of British Columbia Attorney General Policy and Communications MEMORANDUM
TO: Jacquelyn Nelson, Ph.D. DATE: April 27, 1995
Sr. Policy Analyst
Policy and Communications Branch
Re: Rights of the Child - Access to Child's Personal Information
In response to your recent request regarding the above noted aspect of Canada's First Report on the Convention on the Rights of the Child and the UN Review of this report, I offer the following:
It appears that the reference in issue 49 is to the federal Privacy Act and that the UN Committee on the Rights of the Child is seeking clarification of information previously provided, particularly what persons are "authorized" to access a child's personal information and whether the child's consent is needed under provisions of that Act.
British Columbia has developed a regulation under its Freedom of Information and Protection of Privacy Act (FOIPPA) which describes who can act for young people and others. I include a copy of that regulation for your consideration. It is my understanding that British Columbia's legislative scheme is similar to that of the federal government in this regard. It is likely than UN Committee would want to know that (some) Canadian provinces have regulations in place to protect access to a child's information held by a province.
Though FOIPPA is registered as a Ministry of Attorney General statute, the central government administration for this Act is the responsibility of the Ministry of Government Services. Catherine Poole may receive information in regard to this issue from that source as well, though I was unable to verify if that Minister was preparing a response to this issue.
Because time is short, I have forwarded a copy of these comments directly to Catherine Poole.
cc: Catherine Poole, Policy Advisor, Legislation and Intergovernmental Relations, Ministry of Environment, Lands and Parks
APPENDIX 6.2.3REGULATION - WHO CAN ACT FOR YOUNG PEOPLE AND OTHERS
OVERVIEW
Section 3 of the Regulation describes the classes of individuals who May act on behalf of minors, individuals who have a committee and deceased individuals in exercising their rights of access and correction of personal information under the Freedom of Information and Protection of Privacy Act (the Act).
This appendix discusses these classes of individuals and provides guidance to public bodies on the circumstances under which these individuals may act on behalf of others.
KEY POINTS
1. The right of access and right to request correction of personal information of an individual under 19 years of age may be exercised on her or his behalf by the individual's custodial parent or legal guardian, if the individual is incapable of exercising those right.
2. The right of access and right to request correction of personal information of an incompetent who has a committee may be exercised on behalf, of the incompetent by that individual's committee.
3. The right of access and right to request correction of personal information of a deceased individual may be exercised on her or his behalf by the deceased's nearest relative or personal representative (e.g., the executor or administrator of the deceased's estate).
SECTION REFERENCE
(b) on behalf of an individual who has a committee, by the individuals committee;
(c) on behalf of a deceased individual by the deceased's nearest relative or personal representative.
DISCUSSION
Section 3 of the Regulation authorizes specific classes of individuals to exercise the right of access and the right to request the correction of personal information on behalf of minors, individuals who have a committee and deceased individuals.
On behalf of
The use of the terra "on behalf of" means that specific classes of individuals may exercise the right of access and the right to request the correction of personal information "in the interests of" or "as representative" of a minor, a deceased individual or an individual who has a committee. [The Oxford Concise Dictionary)
An individual may not exercise a right or power on behalf of another where there is evidence that the latter had clearly expressed, while she or he was capable of exercising rights under the Act, that she or he did not want a right or power exercised on her or his behalf in a particular regard. Where evidence of such an express statement does exist the public body treats the applicant as a third party for the purposes of the request.
Minors
A "minor" is an individual who is under 19 years of age. Section 3 of the Regulation permits custodial parents or legal guardians to act on behalf of minors who are incapable of exercising their own rights of access and correction under the Act.
Consultation with minor
Depending on the circumstances, the maturity of the minor, the type of personal information involved and other factors, the minor may or may not be capable of exercising her or his rights under the Act. Younger minors, in particular, (e.g., those under 12 or 13) may not be fully capable of exercising their rights under the Act.
Public bodies therefore interview a minor, preferably in person, in order to determine whether or not the minor is capable of exercising her or his rights under the Act. Public bodies must judge each case individually and permit or refuse a parent or guardian to exercise rights on behalf of a minor according to the results of the interview with the minor. To be capable of exercising rights or powers under the Act, a minor must understand the nature of the information at issue and the consequences of exercising rights or powers in a particular manner.
While planning an interview with a minor, public bodies carefully select the interviewer and the location of the interview. Where possible, public bodies select an interviewer who is familiar with the record at issue and with the minor involved. Public bodies conduct interviews in a neutral setting to avoid intimidating the minor or pressuring the minor to respond in a given manner.
It is likely that older minors (those in their mid to late teens) will be fully capable of exercising their rights under the Act and will not want their parents or guardians to have access to their personal information. In such cases, public bodies abide by the wishes of the minor and do not permit the parents or guardians to exercise the rights under the Act on the minor's behalf.
In cases where the parents are separated or divorced and only one parent has custody of the minor, only that parent may exercise the rights of access and correction on behalf of the minor.
Verification
In cases where a public body determines that a minor is incapable of exercising her or his rights under the Act and where satisfactory proof of custodial parenthood or legal guardianship is not already on file, the public body then verifies the circumstances of the case. In all cases, a parent should provide identification for herself or himself and proof of the relationship to the minor (e.g., birth certificate).
Where only one parent has custody of the minor, the custodial parent should provide documentary proof that she or he has custody (e.g., a copy of the official custody order). In the case of separated or divorced parents with joint custody of the minor, the parent making the request should still provide proof of joint custody.
Where a guardian is requesting access on behalf of a minor, the guardian should provide identification for her or himself and documentary proof of the guardianship.
Persons who have a Committee
In this context, a "committee" (pron. commi 'ttee, i.e., with the emphasis on the third syllable) is a person appointed by the court to look after an individual or the affairs of an individual who is incompetent to act for himself or herself [Dictionary of Canadian Law].
For example, if an individual has been declared a "patient" under the Patient's Property Act because of incapacity, a committee may be appointed to manage that individual's affairs. In some cases, the Public Trustee may be appointed committee of an individual. The committee may exercise the individual's rights of access and rights to request correction of personal information on her or his behalf.
Where an individual has not been legally certified as incompetent, individuals purporting to act on her or his behalf are treated as third parties for the purposes of the request.
Public bodies verify that a committee has the authority to act on behalf of an incompetent individual under the Act by examining documentary proof of the appointment as committee.
Deceased Individuals
A deceased individual's right of access and right to request correction of personal information may be exercised on behalf of the deceased individual by the deceased's nearest relative or personal representative.
In deciding whether a nearest relative or personal representative is authorized to exercise these rights under Section 3 of the Regulation a public body must determine whether the applicant is seeing the information in the interests of or as a representative of the deceased individual or whether they are seeking the information in their own interests. In most cases, a relative or personal representative will be acting on behalf of a deceased individual only where there is unfinished business such as the execution of a will. If the applicant is not acting on behalf of the deceased he or she is treated as a third party for purposes of the request.
Nearest Relative
The "nearest relative" is:
1) the deceased's spouse of any age;
2) if none, any one of the deceased's children who has attained the age of majority,
3) if none, either of the deceased's parents;
4) if none, any one of the deceased's brothers or sisters who has attained the age of majority;
5) if none, any other of the deceased's next of kin who has attained the age of majority.
The nearest relative is authorized to exercise access rights and rights to request correction of personal information on belief of a deceased individual only if the deceased has not named a personal representative. The selection of a personal representative is a clear indication of the deceased individual's wishes with respect to who should act on their behalf.
In these cases, public bodies verify the relationship of the relative to the deceased. For example, a spouse should provide both a marriage certificate and a death certificate for the deceased.
Personal Representative
The term "personal representative" is defined in the Interpretation Act to include:
an executor of a will;
an administrator, that is, someone who has been appointed to administer the estate of a person who died without appointing an executor in a will or without leaving a will [Dictionary of Canadian Law];
an administrator with will annexed, that is, an administrator appointed to administer a testator's estate where the executors named in the will refuse or are unable to act [Dictionary of Canadian Law]; and,
where a personal representative is also a trustee of part or all of an estate, the personal representative and trustee.
Upon receiving a request from a person g to act as a personal representative on behalf of a deceased individual, public bodies require documentary proof of the representative's claim. For example, the executor of an estate should provide a copy of letters probate or where the will was not probated, a copy of the will and a death certificate while the administrator of an estate should provide letters of administration, to show that she or he has authority to act. Any representative should also provide identification for her or himself.
NOTE:
While this section of the Regulation-prescribes certain classes of individuals who may act on behalf of others in exercising rights of access and correction of personal information under the Act, it does not limit the rights or powers of any individual authorized by another enactment:
to act on behalf of another; or
to access a third party's personal information.
Where another enactment allows an individual to access or correct personal information on behalf of another, the scope of the representative's authority is limited to the scope of authority granted in the other enactment. Public bodies clarify the scope of a representative's authority at the time a request is received.
Paragraph 33(d) of the Freedom of Information and Protection of Privacy Act permits schools to disclose this information in order to comply with this provision of the School Act. [See Section D.3.8 (Disclosure of personal information) for a discussion on paragraph 33(d).]
An individual who is not authorized by regulation to exercise the rights of access on behalf of another may nonetheless request the information as a third party under the Act. Where the applicant does not have statutory authorization on under this regulation or another enactment to act on behalf of another, or statutory authority to access the information as a third party, public bodies treat the applicant as a third party making a request under the Act and consider disclosure of the personal information under Section 22. The reasons that the applicant is seeking the information would be a relevant factor under subsection 22(2), [See Section C.4.13 to (Harm to personal privacy) for a discussion of Section 22.]
ISSUE: Canada's First Report on the Convention on the Rights of the Child
(#5) Concrete measures being taken to combat discrimination against children born out of wedlock, refugee children, children claiming refuse status or asylum-seeking children, aboriginal children, visible minority children and children living in remote areas. In particular, in view of the information contained in paragraph #4 of the report which indicates that Aboriginal groups are concerned about the treatment of Aboriginal children in the criminal justice and educational systems, please provide details of the measures being considered to address these issues.
BACKGROUND:
In order to provide more inclusiveness, eliminate biases and stereotyping, the Ministry:
Undertakes an on-going review of all provincial curricula and learning resources to ensure inclusion of all children independent of their ethnicity and/or culture. In addition, there is sensitivity regarding the difinition of "family" and the need to ensure this is inclusive as well. Furthermore, cross-curricular areas are being incorporated into every subject, i.e. ESL, First, Nations Studies, Special Needs, Multicultural/Anti-racism Education, Gender Equity and a variety of second language curriculum;
Provides grants and contributions to School Districts and other educational partners to help support programs and proposals aimed at the validation of all cultures present in our school population;
Increasing accessibility to equal education for refugees and minority children by providing funding for ESL support programs and assessment and placement for newly arrived students. Last fiscal year the amount of $58.2 million dollars was budgeted for this purpose. The amount of $67.9 million was allocated for this year;
Promoting the teaching profession among minority children and/or students from a varied ethno/cultural background by showing a video of teachers of different ethnicities talking about their experiences; and
Encouraging school districts to draft their own policies on Multicultural/Anti-racism Education in accordance to their particular realities with the aim of promoting inclusiveness of all learners.
Specifically regarding non-discriminatory treatment for aboriginal people in the school system. The Ministry is strongly committed to providing the curriculum and learning resources for the development of a deeper understanding of the diversity and functioning of First Nations social, economic and governance systems. For the fiscal year of 95/96 the Ministry has allocated an extra amount of $1,518,000 for Aboriginal Education initiatives. It is imperative that these initiatives are acceptable to the aboriginal community.
- Three types of initiatives qualify: Language, Culture and Support.
Future initiatives
The Ministry is fully aware that the fight against discrimination has to be collective, collaborative and on-going. Consequently, the following steps are recommended:
Continued collaboration with School Districts, parental organizations, community agencies, teacher organizations and communities at large to endeavor to remove the systemic barriers to an equitable non-discriminatory education.
Taking a proactive role in preparing the work force of the future by empowering, celebrating and fostering the educational achievements of all students.
Stressing accessibility to the variety of resources available in the school districts. This is important since discrimination is closely related to lack of access for all.
Encouraging educators and counsellors to integrate a variety of strategies enhancing culturally appropriated career programs.
Implementing Multicultural/Anti-racism policies for the Ministry and to encourage school districts to develop clear guidelines for reporting racist and discriminatory incidents with equal and clearly stated consequences for the violators.
ISSUE:
(#21) Information on the system regulating school expulsions and on any measures being taken to reduce the incidence of school expulsions.
The Canadian government has funded a five year Stay in School Initiative to implement a variety of early identification, remediation and intervention programs to keep children "at risk" in school. The intervention programs require "in-school suspensions".
The Ministry of Education has a number of programs which provide target funding to schools to offset the impacts of poverty.
Skills Now
This program is multifaceted and aims to ensure there are relevant opportunities for students that prepare them for direct entry into the work force or post secondary education.
Inner City Schools
Schools with the highest incidence of students from families in poverty, in dangerous urban environments, are provided with additional counseling services, neighbourhood workers and educational field trips.
School Meal Program
Schools with the highest incidence of hungry students are provided with 1/3 of their daily nutritional requirements, and learn good nutrition by example, in order to improve their readiness for learning.
Kids at Risk Initiative
A pilot program to integrate delivery of support services to students and families in need.
Prepared by: Peter Northover
Assistant Director
Social Equity Branch
356-6936
Helen Myers
A/Assistant Director
356-2519
Effective Partnerships - Kids at Risk
The Kids at Risk Initiative is supported by seven social policy ministries, community agencies, native bands, the Child and Youth Secretariat and Child and Youth committees.
The program is working to directly link the resources of the social policy, ministries to provide and coordinate access to government services for the students, their families and their communities. The goal is to ensure that all students and their families have access to local government services which exist and may address issues that translate into barriers to education.
Twelve pilot sites are modelling partnerships within schools with a high number of students who are unable to take full advantage of educational opportunities due to a variety of social and economic reasons.
Pilot projects are designed at the specific community level and operate using a combination of local expertise and knowledge, shared information between pilot sites, and input from government services and social policy ministries.
Although projects are designed and implemented by a community within and around the schools, we anticipate the pilot sites will provide effective models for other communities.
Involves extensive collaboration with School District administrators, parents and community agencies to provide integrated service delivery.
It is a goal that partnerships which are established will provide improved services to the children who have traditionally been unable to access services and take full advantage of the education opportunities available to them.
Equity - Inner City Schools
The $5.0 million Inner City Schools Program provides inner city schools, with targeted funding to support children from families in poverty to be successful in school. The traditionally most disadvantaged students, suffering from abuse, neglect, language difficulties, the impacts of poverty, and a dysfunctional families, are provided with extra resources, counselling and neighbourhood services to be able to achieve equal results in school.
In the second year of this initiative, inner city school teachers and administrators are reporting effective interventions and indicators of success during their most disadvantaged students.
Equity - School Meal Program
The $11.6 million program is entering its fourth successful year. A proximately 35,000 students in over 300 schools usually receive their best meal of the day through the School Meal Program.
Our experience with this program has shown that children who were hungry cannot learn, but good nutrition has enabled children from families in poverty to acquire a readiness for learning. We have also noted much improved behaviour, both in the classroom and also in the playground, especially a reduction in aggressive behaviour.
This program has also been successful in the cooperation shown among school and district administrators, teachers, CUPE union workers, Parent Advisory Committees, and the Ministry of Health, Nutrition Branch.
Equity - Multiculturalism/Anti-racism
British Columbia population is already culturally and ethnically diverse. Cultural pluralism is the condition in society in which numerous diverse persons and/or groups co-exist within one nation.
Implementing Multicultural/Anti-racism policies for the Ministry and encouraging all school districts to develop their own policies and guidelines on Multicultural/Anti-racism Education including specific ways of reporting racist incidents and clearly stated consequences for the violators.
Focussing on the removal of systemic barriers to an equitable education the Ministry has been supporting, encouraging, leading and/or implementing the following initiatives:
- Ongoing review of all provincial curricula and learning resources in order to eliminate biases and examples of stereotyping and to include a multicultural perspective.
- Parallel to this review, the Ministry is also incorporating cross-curricular areas into every subject Integrated Resources Package: ESL, First Nations Studies, Gender Equity, Special Needs and Multicultural/Anti racism Education to increase the inclusiveness and relevance of all provincial curricula for all students.
- Providing grants and contribution to school districts and other educational partners presenting proposals and programs geared to increasing the inclusion of the ethnic/cultural diversity in the schools.
- Information for parents is translated into languages other than English to support direct communication with the parents.
English as a Second Language
Funding for ESL program support in school districts reached the amount of $53.4 million in the 94/95 fiscal year plus a special growth grant of $4.8 million for assessment and placement. The projected funding for 95/96 is $63.2 million plus $4.7 million for assessment and placement
Strong emphasis is placed by the Ministry in the ESL component of the educational system, since the learning of the English language is the first step in the process of integration of the newcoming students in the school system.
Facilitating ongoing consultation, coordination and collaboration with educational institutions, other ministries and communities.
Language Policy
The Language Education Policy has been adopted by the Ministry of Education in recognition of the need to provide programs that encourage students to develop language skills that will assist them to function effectively in British Columbia's multicultural environment.
The Guidelines for Implementation are currently being drafted and will be translated into other languages which are commonly spoken in British Columbia homes.
Prepared by: Social Equity Branch (356-7630)
Our File No.: 12900-01 April 4, 1995
Article 19:
The Ministry of Education has improved school facilities in remote areas and Aboriginal communities. A few of these improvements have included an elementary school placement, a new elementary school with teachers' accommodation, buses, and the creation of a Young Parent program.
In School District No. 88 (Terrace), the Ministry replaced the South Hazelton Elementary School which was destroyed by fire. There has been no need for further school construction in the area as its enrollment is steadily declining. To address the highest rate of teen births in the province, the Ministry of Education together with the Ministry of Womens' Equality located a 24-space Young Parent Program at Calendonia Senior Secondary School in Terrace.
The new Gitwinksihlkw Elementary School in School District No. 102 (Nisga'a) opened in September 1994. This school was built to accommodate enrollment growth in the Canyon City area and provides space for 50 kindergarten students and 50 elementary students. In addition, the Ministry provided funding for the three new elementary school teachers' accommodation. The Ministry also recently replaced a 72-passenger bus and provided an additional 24-passenger bus in the Nisga'a District.
Article 2:
Teacher awareness concerning the Rights of the Child occurs through discussions with Deans of Teacher Education Institutions School District. The Ministry of Education supports the Queen's Harbour Institute that focuses on equity issues with society, public institutions, and schools. Ministry of Education and School Districts and school personnel attend these institutes.
Teacher education programs include a focus on children's rights as a fundamental principle. Schools support these principles in discipline and student/parent related policies.
Article 21:
The purpose of the MOE's Skills Initiative is to improve the relevance of school so students are encouraged to complete graduation, and find school purposeful and interesting enough to avoid behavior leading to expulsion of dismissal from school. A key element of the skills plan is to build personal relevance by asking each student to focus on a future career, plan for that career, and go out into the community to have a formal work experience related to that career. A second key element is to revise curriculum, learning resources and instructional strategies to emphasize the practical applications of curriculum--related to how problem solving, communications, and teamwork for example-are practiced in the workplace, and the standards associated with the workplace. A third provision is to improve school to work and post-secondary transitions, by clearly identifying the linkages between high school programs and those exit destinations. In this manner it is hoped that students will relate school to the demands of life after school and be more interested and engaged in making it a fruitful experience.
Article 20:
Most aspects of the Convention on the rights of the child are dealt with directly in the Personal Planning K-7 curriculum and the Career and Personal Planning 8-12 curriculum:
Curriculum outcome statements, and suggested in structional strategies in the Child Abuse Prevention, Family Life Education, Healthy Living, Mental Well-Being, and Safety and Injury Prevention Sections from K-12 address the components from the convention.
One of the Provincially Recommended resources to support these curricular is:
It's Only Right! A Practical Guide to Learning About the Convention on the Rights of the Child.
Response by the Yukon to Questions regarding Canada's First Report on the Convention on the Rights of the Child
Question 4.
Response: No.
Question 8.
Response:
When older children are placed in group facilities in the Yukon they do participate in the case planning decisions and the placement decision. There are no mental health facilities in the Yukon.
Question 13.
The Yukon has detailed legislation, the Children's Act, which deals with this concern. As well with regard to adoption, a home study is required by the Act and the Director of Family Services reports to the court on these issues. Also, the Act allows the court to hear the views of the child either first hand or on a hearsay basis.
Question 18.
There are no HIV infected children in the Yukon at this time. Preparations for dealing with such a situation have been made through the territorial medical officer of health.
Question 21.
The Education Act regulates school expulsions. Short-term expulsions (one to ten days) are at the discretion of the school principal. Longer-term expulsions (year long) are decided by the local school council. All efforts are made to work closely with the child involved. An alternative to expulsion program has been established. As well there are in-school expulsions where children are placed in a segregated room and have recess and lunch at different times.
Question 27.
The Yukon has extensive child welfare services focused on the rehabilitation and treatment of child victims of abuse or neglect and operates a child abuse treatment service.
Question 2.
Youth detention staff have received written materials on the Convention and foster parents have been made aware of the Convention as well.
Question 7.
The Children's Act requires that, where possible, children be placed with a of their own cultural background in their home community. The Yukon has a policy regarding the placement of First Nations children in culturally appropriate homes. In addition, one First Nation child welfare agency has been established by a First Nation. As part of the current process of establishing First Nation Self Government Agreements, First Nations will be able to operate then own child welfare services should they wish.
Question 11.
Response: No difference in status.
Question 12.
The custody and access provisions of the Children's Act deal with this situation.
Question 15.
As required by the Social Assistance Act and regulations, social assistance programs are in place to ensure all families have sufficient funds for needed accommodation and food.
Question 17.
Yes, children who are 16 and 17 have direct access to the social service system which is integrated with the child welfare system.
Question 19.
An urban school facilities review has just been completed to provide direction for improvements to schools in Whitehorse. A rural facilities study will be undertaken this fall. Upgrades for rural schools are undertaken according to needs and available funding. A new school is being built in Dawson City which to meet the requirements of the local First Nation community and non-aboriginal community.
Question 20.
No such initiative is planned at this
Question 1.
The Yukon has no intention to ask that Canada withdraw its reservations.
Question 3.
The Yukon government is continuing to make use of the Convention in its health and social services policy development work.
Question 5.
The Yukon's Human Rights Act provides measures to combat discrimination regardless of age. Yukon First Nations will be able to deal with this issue through their Self Government Agreements and through agreements which enable them to take over the administration of justice for their citizens.
Question 14.
Social assistance programs, as mandated by the Social Assistance Act, provide support for single parent families. As well, there are day care subsidy programs for low income people.
Question 23.
The Yukon government runs a Youth Achievement Centre which provides a variety of daytime rehabilitation programs to teach skills to young people. The government's Alternative Measures Program provides other measures than processing these young people through the courts.
Question 25.
This concern is being addressed through Self Government Agreement. It is also being taken into account in the review of the Young Offenders Act. For several years, some culturally appropriate programs have been incorporated into the programs offered at the Yukon's young offenders custody facilities. As well, First Nation staff are hired to work with these young people.
Question 28.
Community groups have been actively addressing this issue. There is a very group in the Yukon.
Question 30.
Response: The Yukon has not done this type of research.
2. Donner des précisions sur les mesures prises pour incorporer l'enseignement des principes et dispositions de la Convention dans les programmes de formation et de recyclage des professionnels qui travaillent avec ou pour des enfants, y compris les avocats, les juges, les enseignants, le personnel pénitentiaire, les employés des établissements de détention pour jeunes et les agents de police.
3. Indiquer si d'autres mesures sont envisagées pour faire plus largement connaître les principes et les dispositions de la Convention parmi les adultes et les enfants.
Au Québec, le contenu des programmes de formation des maîtres dépend de chacune des universités. Ces programmes contiennent des éléments sur la psychologie de l'enfant et sur ses droits ainsi que sur l'application, en milieu scolaire, de la Loi sur la protection de la jeunesse. Il en est de même de certains programmes de perfectionnement.
De plus, en collaboration avec le ministère de l'Éducation, la Commission de protection des droits de la jeunesse a produit, à l'intention des enseignants et des enseignantes du préscolaire, du primaire et du secondaire et des autres personnels scolaires, une brochure intitulée "Signaler, c'est déjà protéger". Cette brochure rappelle l'importance de l'école dans la prévention et le dépistage des abus faits aux enfants, les motifs de signalement et l'obligation de signaler tout abus.
De plus, les quatre ministères concernés, soit l'Éducation, la Justice, la Santé et les Services sociaux et la Sécurité publique, ont adopté, en 1992, une entente conjointe d'intervention intersectorielle à la suite d'allégations d'abus sexuel en milieu scolaire.(voir paragraphe 910 du rapport)
En outre, l'enseignement des principes et dispositions de la Convention est assuré dans la mesure où, en matière de services de santé et de services sociaux, ils confirment ceux contenus au Code civil du Québec, à la Charte des droits et libertés de la personne, à la Loi sur la protection de la jeunesse, à la Loi sur les services de santé et les services sociaux, de même qu'à la Loi sur les jeunes contrevenants.
La révision en cours du Manuel de référence relatif à la Loi sur la protection de la jeunesse et du Manuel de référence relatif à la Loi sur les jeunes contrevenants prévoit inclure une section qui fait explicitement référence à la Convention.
D'autre part, la Commission des droits de la personne procède, depuis quelques années, à une large diffusion d'un ouvrage préparé par son service de l'Éducation et intitulé: "Pour mieux vivre ensemble" (ou en anglais: "Sharing a better life together through Human Rights") qui illustre aux jeunes, d'une manière simple et concrète, des applications de la Charte québécoise des droits et libertés de la personne. Ce guide offre une réflexion sur divers sujets comme la promotion et le respect de la Charte en milieu scolaire, la relation d'égalité qui devrait s'établir entre jeunes et adultes, la lutte contre le sexisme et le racisme, la discrimination et la violence.
Les milieux visés par la diffusion de cet important instrument de sensibilisation sont principalement les commissions scolaires, les comités de parents, les directions et comités d'écoles, les associations de femmes, les organismes de la protection de la jeunesse, les juges du Tribunal de la jeunesse, les avocats de la protection de la jeunesse et de laide juridique, les regroupements de jeunes, les directions régionales du ministère de l'Éducation et le Secrétariat à la jeunesse. Près de 12000 copies de la publication sont diffusées depuis la parution de l'ouvrage en 1988. Les jeunes, les parents comme les enseignants retrouvent dans cet ouvrage, une méthode pédagogique très efficace d'aborder le respect des droits des jeunes sans pour autant négliger l'aspect responsabilité. Comme la Charte québécoise contient les divers principes et droits visés dans la Convention, la diffusion d'un tel document répond aux engagements pris notamment dans ses articles 2 et 42. Une copie française et une copie anglaise de cette publication sont jointes.
Il faut, par ailleurs, mentionner la publication, chaque année, du rapport d'activités de la Commission dont près de 600 copies sont distribuées notamment aux députés de l'Assemblée nationale, aux commissions des droits de la personne oeuvrant au Canada, aux principaux organismes publics, aux bibliothèques universitaires ainsi qu'au Conseil permanent de la jeunesse, au Conseil de la famille, à la Fédération des Commissions scolaires au Conseil supérieur de l'éducation ainsi qu'à des groupes voués à la défense des droits. Citons, dans ce contexte, un passage du rapport annuel de 1992 qui fait référence à la Convention relative aux droits de l'enfant en ces termes:
"Une société qui ne s'occupe pas de ses enfants, est une société sans avenir, dit-on. C'est pourquoi il nous apparaît primordial de consacrer une part substantielle de nos activités à l'éducation aux droits dans les milieux scolaires, comme l'organisation des Nations Unies nous incite d'ailleurs à la faire. L'ONU a, en effet, toujours mis l'accent particulier sur la formation des jeunes aux droits de la personne. Elle l'a fait encore récemment dans le cadre de la CONVENTION SUR LES DROITS DE L'ENFANT, adoptée par l'Assemblée générale des Nations Unies, le 20 novembre 1989 et ratifié par le Canada en décembre 1991. La Convention met la formation aux droits de la personne au coeur même de l'éducation des enfants et des jeunes. Elle définit ainsi certaines modalités (suit la citation du paragraphe 1, b, c et d et de l'article 29 de la Convention).
Cette approche nous semble tout à fait réaliste, puisque nous pouvons raffinement constater la capacité des jeunes d'aborder, beaucoup plus facilement que les adultes, des valeurs nouvelles qui correspondent le plus souvent, lorsqu'il s'agit des droits de la personne, à la manière dont ils voudraient voir les rapports sociaux aménagés.
C'est pourquoi il faut porter une attention particulière à la démocratisation des milieux dans lesquels les jeunes évoluent, notamment à l'école et trouver les moyens pour quels se trouvent au plus tôt un rôle utile, une contribution à apporter à leur société...
Nous voulons aussi que ces jeunes puissent vivre dans des structures qui ne tolèrent pas la discrimination et où des jeunes appartenant à des catégories de personnes doublement discriminées (âge et handicap, âge et race, âge et sexe) puissent s'épanouir sans distinction, exclusion ou préférence". Commission des droits de la personne, Rapport annuel 1992, p. 49.
La Commission de protection des droits de la jeunesse a également produit et diffuse une série de documents d'information sur les droits de l'enfant, documents qui sont destinés aux enfants en difficulté et aux professionnels chargés de la protection des enfants. On trouvera en annexe certains de ces documents.
En ce qui concerne les agents de police et le personnel des établissements de détention sous juridiction québécoise, les principes de la Convention relative aux droits de l'enfant se retrouvent dans les dispositions législatives visant à assurer le bien-être des enfants qu'ils doivent appliquer. Dans le cas de la Sureté du Québec, les principes de la Convention font l'objet de directives opérationnelles portées à la connaissance des policiers.
Il n'y a pas, dans les programmes de formation et de recyclage des agents de police, mention expresse de la Convention relative aux droits de l'enfant. Toutefois, ces programmes portent notamment sur les dispositions législatives applicables aux enfants et forment ainsi les policiers à l'application d'une législation conforme à la Convention.
Dans le secteur correctionnel sous la responsabilité du ministère de la Sécurité publique du Québec, des efforts permanents sont consentis afin qu'éventuellement aucun enfant ne se retrouve dans le réseau correctionnel pour adultes. Ainsi, le nombre très limité d'enfants et de jeunes contreve- nants s'y trouvant ne justifie pas que des mesures spécifiques soient prises en matière de formation du personnel.
Mentionnons en terminant que, suite à une entente de coopération qu'ils ont conclue, la Commission des droits de la personne et l'Institut international des droits de l'homme ont organisé une session de formation sur l'éducation aux droits de la personne à Strasbourg, en juillet 1994, dans le cadre de l'Université d'été. Cette session et d'autres qui vont suivre sont destinées aux professeurs de facultés pédagogiques, aux directeurs d'établissement, aux inspecteurs, aux conseillers pédagogiques et aux enseignants du primaire et du secondaire originaires des pays africains et d'ailleurs. Elles ont pour objectif de former des agents multiplicateurs notamment dans le réseau de l'éducation et de développer les connaissances et les habilités en matière de droits de la personne et de la démocratie en milieu scolaire.
4. Est-il envisagé d'harmoniser la législation dans l'ensemble du pays en ce qui concerne l'âge minimum de l'emploi des enfants et l'âge à partir duquel un enfant peut consulter un juriste ou un médecin sans le consentement de ses parents?
L'Association canadienne des administrateurs de la législation ouvrière (ACALO) n'a pas, jusqu'à présent initié de démarche pancanadienne visant l'harmonisation des législations des provinces en ce qui concerne l'âge minimum de l'emploi.
a) Non-discrimination (art. 2)
5. Donner des informations complémentaires sur les mesures concrètes qui sont prises pour lutter contre la discrimination à l'égard des enfants nés hors mariage, des enfants réfugiés ou en attente du statut de réfugié, des enfants demandeurs d'asile, des enfants aborigènes, de ceux qui appartiennent à une minorité visible et de ceux qui vivent dans des régions reculées. À propos notamment de la préoccupation exprimée par les groupes autochtones et soulignée au paragraphe 64 du rapport au sujet du traitement réservé aux enfants autochtones dans les systèmes scolaires et judiciaires, donner des détails sur les mesures envisagées pour résoudre les problèmes qui se posent dans ces domaines.
- Système scolaire
La Convention de la Baie James et du Nord québécois a permis la création de commissions scolaires autochtones pour les nations Cris et Inuit. Ces commissions scolaires sont administrées par les autochtones eux-mêmes, ce qui permet de respecter les particularités culturelles des élèves autochtones.
De plus, les services offerts à la communauté des Naskapis sont assurés par "l'école Naskapi", rattachée administrativement à une Commission scolaire régionale (Eastern Québec).
Pour les huit autres nations autochtones, le ministère de l'Éducation soutient des projets d'aide pédagogique à certaines écoles, les écoles de bande étant financées par le gouvernement fédéral. Par ailleurs, un certain nombre d'élèves autochtones sont intégrés dans les écoles des commissions scolaires soit en vertu d'ententes, soit parce qu'ils résident hors des territoires des réserves.
Le Ministère a aussi un programme de sensibilisation des jeunes québécois à la culture et à la réalité des autochtones.
- Système Judiciaire
Le système de justice s'applique à l'ensemble de la population. Les tribunaux sont cependant sensibles à la situation des jeunes autochtones, particulièrement lorsqu'ils vivent en région éloignée. Les tribunaux favorisent ainsi le maintien dans leur milieu lors du procès et cherchent à appliquer toute mesure de prise en charge au sein de leur communauté.
b) L'intérêt supérieur de l'enfant (Art. 3)
7. En ce qui concerne le paragraphe 70 du rapport, indiquer les mesures prises ou envisagées pour répondre aux préoccupations des col-lectivités autochtones qui considèrent que les procédures actuelles d'adoption et de prise en charge ne coïncident pas avec l'intérêt supérieur de l'enfant, lorsqu'il est question de placer les enfants autochtones dans des familles qui ne le sont pas.
Dans le cadre du Plan d'action jeunesse (1992) du ministère de la Santé et des Services sociaux, une mesure en voie de réalisation prévoit 'la prise en compte, par les responsables de l'application de la Loi sur la protection de la jeunesse, des modalités d'application propres au contexte culturel, à la réalité géographique des communautés autochtones et à leur capacité de dispenser les services".
Des modifications récentes à la Loi sur la Protection de la jeunesse, en date de juin 1994, tiennent compte de cette réalité.
Ainsi, à l'article 3 qui prévoit que:
"Les décisions prises en vertu de la présente loi doivent l'être dans l'in-térêt de l'enfant et dans le respect de ses droits."
L'alinéa suivant a été ajouté:
"Sont pris en considération, outre les besoins moraux, intellectuels, affectifs et physiques de l'enfant, son âge, sa santé, son caractère, son milieu familial et les autres aspects de sa situation."
De plus, l'article 2.4 de cette loi prévoit:
"La personne à qui la présente loi confie des responsabilités envers l'enfant ainsi que celles appelées à prendre des décisions à son sujet en vertu de cette loi tient compte, lors de leur intervention de la nécessité:
"(...)
5e de favoriser des mesures auprès de l'enfant et de ses parents en prenant en considération qu'il faut agir avec diligence pour assurer la protection de l'enfant, compte tenu que la notion de temps chez l'enfant est différente de celle des adultes, ainsi qu'en prenant en considération les facteurs suivants:
a) la proximité de la ressource choisie,
b) les caractéristiques des communautés culturelles;
c) les caractéristiques des communautés autochtones;"
À la demande de deux communautés autochtones (Inuit et Cris), le ministère de la Santé et des Services sociaux et les autorités régionales concernées viennent d'accepter le principe du développement de ressources de réadaptation sociale sur leur territoire. Ces ressources seront composées de personnel autochtone et gérées par des autochtones.
Concernant plus spécifiquement la situation qui prévaut en matière d'adoption, un comité, composé de représentants du ministère de la Justice, de l'administration régionale Kativik et du ministère de la Santé et des Services sociaux, examine actuellement la question de la reconnaissance de l'adoption coutumière en milieu inuit. Cette pratique consiste essentiellement à conclure une entente verbale entre deux familles concernant la garde d'un enfant. Les résultats des travaux du comité pourront servir aux autres nations autochtones qui voudront aborder la question. Vu l'existence de ce comité, l'adoption coutumière n'a pas été traitée dans le cadre de référence en matière d'adoption que le ministère de la Santé et des Services sociaux a diffusé en 1994.
d) Respect des opinions de l'enfant (art. 12)
8. Donner des informations complémentaires sur les mesures prises pour garantir que le droit de l'enfant à exprimer son opinion et à ce que celle-ci soit prise en compte est respecté, en ce qui concerne notamment le placement dans un établissement psychiatrique.
Outre les informations contenues au paragraphe 869 du rapport, la Loi sur la protection de la jeunesse, à l'article 2.4, prévoit également en son para-graphe 4e, que les personnes tiennent compte, lors de leur intervention, de la nécessité:
4e de permettre à l'enfant et ses parents de faire entendre leurs points de vue, d'exprimer leurs préoccupations et d'être écoutés au moment approprié de l'intervention;"
La Loi sur les services de santé et les services sociaux contient aussi des dispositions sur ce sujet, notamment à l'article 9 concernant le consentement aux soins, à l'article 10 en ce qui a trait à la participation à toute décision affectant l'étant de santé et de bien-être d'une personne, de même que lors du mécanisme pour examiner les plaintes des usagers.
Le ministère de la Santé et des Services sociaux a diffusé, en 1993, un guide de participation à l'intention des usagers, dans le cadre de la formation sur les droits et recours en santé mentale.
Il existe aussi, depuis 1988, un Protocole sur les garanties minimales de protection à assurer aux jeunes en difficulté d'adaptation du réseau des centres de réadaptation, qui cerné les responsabilités de ces établissements quant à la prévention et la correction des conduites inacceptables envers les enfants et les adolescents, et qui propose à ces égards des indications sur les règles, normes et mesures à mettre en oeuvre.
Le Protocole prévoit notamment les moyens mis à la disposition du jeune et de ses parents pour rapporter aux autorités les situations de conduites inacceptables dont ils pourraient avoir connaissance.
Le droit des jeunes enfants de faire valoir leur point de vue a été examiné par la Cour d'Appel du Québec dans deux décisions dont on trouvera copie en annexe. Ces deux jugements ont été obtenus à l'initiative de la Commission de protection des droits de la jeunesse.
10. Quelles mesures sont envisagées, le cas échéant, pour interdire que l'enfant ne soit soumis à des châtiments corporels dans son milieu scolaire ou familial?
En milieu scolaire, comme dans tout autre milieu, l'enfant est protégé contre les châtiments corporels par la Loi de la protection de la jeunesse. Par ailleurs, l'article 22 de la Loi sur l'instruction publique précise, entre autres, qu'il est du devoir de l'enseignant "d'agir d'une manière juste et impartiale dans ses relations avec ses élèves et de prendre les moyens appropriés pour aider à développer chez ses élèves le respect des droits de la personne".
De plus, cette Loi prévoit, à l'article 26, "que toute personne peut porter plainte au ministre contre un enseignant pour inconduite ou immoralité ou pour une faute grave dans l'exercice de ses fonctions." Les articles subséquents de la Loi prévoient les mécanismes qui doivent être rais sur pied lorsqu'une plainte est formulée. E y est prévu que si la plainte s'avère fondée, le ministre peut "suspendre, révoquer ou interdire ou maintenir sous conditions l'autorisation d'enseigner de l'enseignant."
Le milieu scolaire devient un partenaire privilégié dans la lutte contre les châtiments corporels en milieu familial. L'article 39 de la Loi sur la protection de la jeunesse indique que toute personne prodiguant des soins ou dispensant des services à des enfants ou à des adolescents, même si eue est liée par le secret professionnel à l'obligation de faire un signalement lorsqu'elle a un motif raisonnable de croire qu'un enfant est en danger au sens de la Loi. L'article 42 de cette même Loi indique que tout adulte est tenu d'apporter l'aide nécessaire à un enfant qui désire saisir les autorités compétentes d'une situation compromettant sa sécurité ou son développement, ceux de ses frères et ses soeurs ou ceux de tout autre enfant.
11. Quelles sont les mesures prises ou envisagées pour améliorer le statut juridique des enfants nés hors mariage?
Voir paragraphe 862 du rapport.
12. Donner des détails supplémentaires sur les mesures prises pour garantir le droit de l'enfant à garder le contact avec ses deux parents lorsque ceux-ci sont séparés ou divorcés.
En plus des informations déjà contenues en particulier aux paragraphes 863, 867 et 869 du rapport, le Code civil du Québec prévoit à l'article 513 que la séparation de corps laisse subsister les droits et devoirs des pères et mères à l'égard de leurs enfants.
L'article 514 stipule que le tribunal au moment de prononcer la séparation doit statuer sur la garde, l'entretien et l'éducation des enfants et ce, dans l'intérêt de ceux-ci et le respect de leurs droits et en tenant compte s'il y a lieu des accords conclus entre les époux.
Les droits et devoirs des parents sont énoncés au Titre quatrième du Code cicil du Québec sur l'autorité parentale. C'est dans ce titre que l'on re-trouve l'article 605 qui se lit comme suit:
"Que la garde de l'enfant ait été confiée à l'un des parents ou à une tierce personne, quelles qu'en soient les raisons, les père et mère conservent leur droit de surveiller son entretien et son éducation et sont tenus d'y contribuer à proportion de leurs facultés."
Dans le cas de divorce, les mêmes règles s'appliquent puisque l'article 521 du Code civil du Québec précise que "à l'égard des enfants, le divorce pro-duit les mêmes effets que la séparation de corps."
13. Donner des informations complémentaires sur les mesures prises pour véritablement garantir que l'intérêt supérieur de l'enfant et ses opinions soient pris en considération dans les cas d'adoption.
En plus des informations contenues aux paragraphes 899 et suivants du rapport, mentionnons, d'une part, que l'article 33 du Code civil du Québec prévoit que les décisions concernant l'enfant doivent être prises dans son intérêt et dans le respect de ses droits.
D'autre part, les articles 549 et 550 du Code civil prévoient:
"549. L'adoption ne peut avoir lieu qu'avec le consentement de l'enfant, s'il est âgé de dix ans et plus, à moins que ce dernier ne soit dans l'impossibilité de manifester sa volonté.
Toutefois, lorsque l'enfant de moins de 14 ans refuse son consentement, le tribunal peut différer son jugement pour la période de temps qu'il indique ou, nonobstant le refus, prononcer l'adoption."
"550. Le refus de l'enfant âgé de quatorze ans et plus fait obstacle à l'adoption."
Soulignons également que le cadre de référence du ministère de la Santé et des Services sociaux en matière d'adoption, L'adoption: un projet de vie (1994), vise à définir l'intervention afin de mieux tenir compte de l'intérêt de l'enfant. Le cadre de référence cherche notamment à favoriser l'adoption des enfants québécois plus âgés et de ceux qui sont handicapés.
14. Donner des informations complémentaires sur les efforts déployés pour garantir véritablement que les familles monoparentales bénéficient d'un appui suffisant et adéquat pour élever les enfants.
Les paragraphes 925 et suivants du rapport contiennent des informations pertinentes sur cette question. À l'égard des familles monoparentales, ajoutons que le Régime de sécurité du revenu reconnaît que le premier enfant d'une famille monoparentale entraîne des frais de subsistance plus élevés que le premier enfant d'un couple; une prestation plus élevée leur est ainsi versée. Les familles monoparentales sont donc assurées d'une aide financière minimale pour répondre aux besoins de leurs enfants.
De plus, le ministère de la Sécurité du revenu a décidé, dans le cadre des orientations stratégiques qu'il s'est donné pour les trois prochaines années, de cibler de façon prioritaire la lutte à la pauvreté chez les enfants et les familles monoparentales.
15. Donner plus de détails sur les politiques et les mesures adoptées pour empêcher que les enfants et leurs familles ne se trouvent sans abri ou ne vivent dans des logements précaires.
Le Régime de sécurité du revenu accorde une aide financière aux familles qui ont des ressources insuffisantes pour couvrir leurs besoins de base. L'aide octroyée permet aux familles de se loger décemment. Cependant, les familles qui ont des enfants ont plus de difficulté à se loger. Conséquemment, les familles ayant des enfants à leur charge peuvent être admissibles à une aide financière supplémentaire (l'allocation-logement), qui est déterminée selon le coût du logement. L'allocation-logement maximale est actuellement de 90$ par mois.
16. Donner des informations complémentaires sur les mesures prises pour résoudre le problème de l'approvisionnement en eau de mauvaise qualité auquel se trouvent confrontés les enfants aborigènes dans leurs communautés.
Chez les Inuit du Nunavik, la question d'approvisionnement en eau potable est déjà réglée. Les municipalités nordiques bénéficient d'un programme spécial de soutien du gouvernement du Québec pour assurer leur responsabilité à cet égard, responsabilité qui est similaire à celle des municipalités non autochtones du Sud.
En ce qui a trait aux Amérindiens, c'est le gouvernement fédéral qui est responsable de soutenir financièrement les communautés pour leur permettre de s'approvisionner adéquatement en eau potable.
17. En ce qui concerne l'application de l'article 26 de la Convention, indiquer si les enfants ont directement accès à la sécurité sociale.
Les enfants n'ont pas directement accès à la sécurité sociale. Cependant, diverses mesures gouvernementales (allocations familiales québécoise, prestation fédérale pour enfant, etc.) sont versées à leurs parents. De plus, les parents, dont les revenus sont insuffisants pour couvrir les besoins de base de leur famille, peuvent être admissibles au Régime de sécurité du revenu. La personne mineure ayant un enfant à sa charge est également admissible à la sécurité du revenu. Les enfants peuvent donc compter sur une aide financière de l'Êtat qui couvre leurs besoins de base.
18. Donner davantage d'informations sur les mesures qui ont été prises pour traiter les enfants affectés par le VIH.
Dans le cas du sida, l'Hôpital Sainte-Justine de Montréal applique une approche globale (bio-psycho-sociale) qui tient compte de tous les aspects liés à la maladie.
19. Quelles mesures sont prises pour améliorer l'infrastructure scolaire dans les régions reculées et les communautés aborigènes?
En plus des informations déjà fournies sous la question 5, mentionnons que le gouvernement du Québec assume des responsabilités en matière d'éducation pour les Cris, les Inuit et la Naskapis. Ces nations autochtones, qui ont signé les conventions du Nord avec les gouvernements québécois et fédéral, ont vu leur situation normalisée en ce qui a trait à l'organisation scolaire. Elles disposent donc des mêmes facilités que les communautés non autochtones du Sud en plus de bénéficier d'un traitement spécial pour l'enseignement des langues vernaculaires. En 1993-1994, le gouvernement du Québec a dépensé plus de 116 millions $ pour l'éducation des autochtones conventionnés. Chez les autochtones non conventionnés du Québec, c'est le gouvernement fédéral qui assume la responsabilité de financer adéquatement l'éducation dans les communautés.
20. Compte tenu de la création récente d'une Décennie des Nations Unies pour l'éducation dans le domaine des droits de l'homme, indiquer si les autorités fédérales, provinciales ou territoriales ont l'intention de profiter de cette initiative pour incorporer l'enseignement de questions ayant trait à la Convention dans les programmes scolaires.
Les programmes obligatoires de formation personnelle et sociale du primaire et du secondaire, en vigueur depuis 1984, comportent chacun deux importants volets, l'un portant sur "les relations interpersonnelles" et l'autre, sur "la vie en société". Ces volets visent d'abord à sensibiliser les jeunes à tout le domaine des droits de l'homme et des droits de l'enfant dans la société québécoise et l'intégration des principes de droits et de responsabilités dans leur vie quotidienne.
Au primaire, le volet "éducation aux relations interpersonnelles" a pour but d'aider l'élève à prendre conscience de sa réalité et de celles des autres, afin d'améliorer la qualité de ses relations interpersonnelles. Le volet "éducation à la vie en société" vise, entre autres objectifs, à faire reconnaître à l'élève qu'il a des droits et des responsabilités en tant qu'individu et en tant que membre de la société, à adopter une attitude d'accueil à l'égard des personnes de son milieu qui ont un mode de vie différent du sien, et à reconnaître l'existence et la raison d'être des lois.
Au secondaire, le programme de formation personnelle et sociale vise, entre autres objectifs, à ce que l'élève puisse connaître les divers aspects de la Charte québécoise des droits et libertés de la personne, développe des attitudes et des comportements lui permettant d'établir un équilibre entre ses attentes et celles de sa collectivité et, e@ soit capable de circonscrire les éléments de la Loi de la protection de la jeunesse.
21. Donner des informations sur le système de réglementation des exclusions scolaires et sur les mesures prises pour les réduire.
Au Québec, la Loi sur l'instruction publique prévoit que toute personne a droit aux services éducatifs jusqu'à la fin de l'année scolaire où elle atteint l'âge de 18 ans, ou de 21 ans dans le cas des personnes handicapées.
Toutefois,- la Loi prévoit aussi, à l'article 242, des mesures exceptionnelles pouvant conduire à l'expulsion. Cet article se Et comme suit:
"La commission scolaire peut, à la demande d'un directeur d'école, pour une cause juste et suffisante et après avoir donné à l'élève et à ses parents l'océan d'être entendus, inscrire un élève dans une autre école ou l'expulser de ses écoles; dans ce dernier cas, elle le signale au directeur de la protection de la jeunesse."
b) Les enfants qui ont des démêlés avec la justice (art. 40, 37 et 39 de la Convention)
23. À propos des questions relatives au système d'administration de la justice pour enfants et à la lumière des dispositions du paragraphe 4 de l'article 40 de la Convention en particulier, donner des informations supplémentaires sur les solutions de rechange pouvant être substituées à la détention ou à l'emprisonnement des enfants.
Le gouvernement du Québec a mis en place un programme de mesures de rechange qui vise à ce que le dossier ne soit pas "judiciarisé"; parmi ces mesures, mentionnons la lettre d'excuse, les rencontres supervisées avec la victime, les travaux communautaires ou le suivi psycho-social. Une grande proportion des jeunes bénéficie de ce programme, notamment lorsqu'il s'agit de délits contre la propriété.
Losque le dossier doit être "judiciarisé", les tribunaux envisagent également des mesures pouvant limiter la détention des adolescents. De fait, le taux d'incarcération des jeunes contrevenants est relativement peu élevé.
25. Quelles mesures prévoit-on pour répondre à la préoccupation des communautés aborigènes en ce qui concerne le traitement des enfants aborigènes dans le système pénal?
Il y a lieu de mentionner, à cet égard, que des discussions sont actuellement en cours avec des organismes autochtones afin d'évaluer l'application de la Loi sur la Protection de la jeunesse et de la Loi sur les jeunes contrevenants.
d) L'exploitation des enfants (art. 32 à 36 et 39 de la Convention
27. En ce qui concerne l'application de l'article 39 de la Convention, donner des informations supplémentaires sur les mesures prises ou envisagées pour garantir l'efficacité des mesures de réadaptation et réinsertion sociale des enfants victimes de mauvais traitements ou d'abandon.
Les amendements récents à la Loi sur la protection de la jeunesse prévoient la révision de la situation après un délai d'un an au heu de deux de tout enfant placé en famille d'accueil ou dans un centre de réadaptation, en vertu de la Loi sur les services de santé et les services sociaux, afin de clarifier le plus rapidement possible le projet de vie de ces enfants. L'allo-cation de ressources financières a été prévue à cet effet dans le cadre du Plan d'action jeunesse.
Le cadre de référence "L'adoption: un projet de vie" (1994) permet de redonner une place importante à l'adoption comme possibilité dans l'élabo-ration d'un projet de vie permanent pour l'enfant et ses futurs parents. Le cadre de référence favorise le développement d'une vision commune de l'adoption chez les intervenants sociaux médicaux et judiciaires, tant pour les enfants nés au Québec que pour ceux domiciliés hors du Québec. Afin de soutenir davantage les familles qui adoptent un enfant domicilié hors Québec, il existe, à compter de l'année d'imposition 1994, un crédit d'impôt remboursable au titre des frais d'adoption.
En 1994, le ministère de la Santé et des Services sociaux a diffusé un guide, "Vers un continuum de services intégrés à la jeunesse", afin de favoriser le développement de solutions de rechange au placement des jeunes. Ces solutions de rechange consistent à développer des interventions en milieu naturel, notamment par la mise en oeuvre de projets d'intervention en situation de crise.
Les centres de réadaptation pour jeunes en difficulté mettent déjà en oeuvre de nombreux programmes pour favoriser la réadaptation et la réin-sertion sociale des jeunes: ateliers de travail, stages en milieu de travail, soutien à la fréquentation scolaire, services en milieu naturel, accompagne-ment dans les démarches des jeunes... Dans le cadre d'une démarche en cours visant à préciser les orientations ministérielles jeunesse, l'une des priorités concerne la nécessité d'accentuer le virage famille ou milieu de vie de l'enfant pris par les centres de réadaptation depuis quelques années. Il s@agit de mobiliser les partenaires de tous 'les secteurs d'activités pour rele-ver le défi de l'intégration et de la réinsertion sociale des jeunes.
28. À propos des informations données au paragraphe 374 du rapport, indiquer si des mesures ont été prises récemment pour résoudre le problème des enfants vivant et/ou travaillant dans la rue.
Le Plan d'action jeunesse (1992) a permis d'accroître le soutien financier aux organismes communautaires jeunesse. Un certain nombre de ces orga-nismes oeuvrent auprès des jeunes marginalisés ou en voie de l'être.
Dans le cadre de l'orientation ministérielle (Santé et Services sociaux) axée vers l'intégration et la réinsertion sociale des jeunes, des mesures nouvelles seront prises par le réseau de services:
les services sociaux à l'enfance et à la jeunesse doivent développer une préoccupation accrue de suivi pour aider à l'intégration des jeunes;
les services sociaux doivent consolider et développer des programmes pour rejoindre les jeunes marginalisés (itinérance, prostitution).
Il faut rappeler que les centres locaux de services communautaires (CLSC) comptent parmi leur personnel d'intervenants sociaux et communautaires un certain nombre de "travailleurs de rue".
d) Enfants appartenant à une minorité ou à un groupe autochtone (art. 30 de la Convention)
30. Quelles études ont été entreprises sur les raisons du nombre relati-vement élevé de suicides parmi les enfants aborigènes?
En plus de l'importante étude rendue publique récemment par la Commis-sion royale sur les peuples autochtones et traitant du suicide chez les autochtones, "Choisir la vie", on peut citer l'étude québécoise de Bella H. Petawabano et al. intitulée 'U santé mentale et les autochtones du Québec".