First Annual Report 2008 – NBSCCC
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First Report 2008 – Establishment, Structure, Standards and Guidance, and Progress
Introduction
Church Structure
The hierarchical structure of the Catholic Church on the island of Ireland involves twenty-six dioceses gathered into four provinces. Each diocese comprises a ‘portion of the people of God’ entrusted to the care of a Diocesan Bishop. The Pastoral care of God’s people is effected through parishes with their own designated parish priest and sometimes one or more curates. Appendix 1 provides current details on the number of parishes and churches and the Catholic population for each diocese in Ireland.
In addition to the hierarchical structure of the Church there are many religious institutes of men and women. These institutes, which are variously described (usually as specific Religious Orders or Congregations), have their own internal government independent of the government of Diocesan Bishops. In Ireland, most collaborate through membership of CORI (Conference of Religious of Ireland) or the IMU (The Irish Missionary Union). In matters of public worship or apostolic activity, religious may be subject to the supervision of Diocesan Bishops.
Appendix 2 provides current details on the number of Priests and Religious in each Diocese in Ireland. The Church is also aided in its mission and in the provision of pastoral care by a significant number of lay people. Some are direct employees but many are volunteers.
The Church has pastoral responsibility for over a million children and young people, and through the work of the National Board, clergy and lay volunteers seeks to safeguard and promote children’s development in all aspects of Catholic life.
Background in Child Protection Initiatives
Child Sexual Abuse: Framework for a Church Response (commonly referred to as the Green Book), published in 1996, created the first set of national guidelines in the Church throughout Ireland. These guidelines related solely to child sexual abuse by priests and religious. The experience gained from practical implementation of the Green Book guidelines, aided in part by the extensive research project undertaken by the Royal College of Surgeons (commissioned by the Bishops’ committee on Child Abuse), and published in A Time to Listen in December 2003, informed subsequent work in this area. A working group, under the chairmanship of Ms Maureen Lynott was set up in 2003 to develop a comprehensive and integrated child protection policy encompassing all Church-related activities and personnel (including volunteers) in Ireland, north and south. Its objectives included the need to be consistent with civil law, statutory guidelines in the area of child protection and all relevant Church law.
This project led to the publication of Our Children, Our Church. At the December 2005 launch of Our Children, Our Church, Church leadership committed to the setting up of a National Board for Child Protection in the Catholic Church and the name of the first chairman was announced – Mr Justice Anthony Hederman. This new Board held its inaugural meeting in May 2006. The Board chose to adopt a different title to reflect more accurately its wider view of its remit. It adopted the title of The National Board for Safeguarding
Children in the Catholic Church in Ireland early in 2008. It is now legally incorporated under the name Coimirce (which translates, Safeguard).
The Formative Period of the Board
The terms of reference for the working party charged with producing Our Children, Our Church were confined to establishing policy and structures and did not extend to any role in terms of implementation of that policy. One of the first tasks of the Board therefore involved a rigorous examination and testing of the likely effects of implementing policy within the recommended structures. The Board concluded that the structures recommended in Our Children, Our Church needed alteration and improvement. Another key review, which required considerable consultation with Church leaders, concerned the terms of reference of the Board itself. The Board concluded, after legal advice, that it could not, as envisaged by Our Children, Our Church, take responsibility for ensuring the implementation of Church policies. The responsibility for ensuring the implementation of Church policies lies with the bishops and religious leaders themselves, aided by ‘best practice’ advice from the Board and its National Office. The Board emphasised that there should be no ambiguity in its key role to monitor how Church leaders fulfil their responsibilities in adopting and ensuring implementation of best practice and procedures. The main objective of the Board is to promote, on behalf of the Catholic Church in Ireland, the safeguarding of children so that they may grow and develop in a healthy and nurturing environment.
When agreement was reached with Church leadership on the remit of the Board and on reconfiguration of the structures to deliver child safeguarding policies, procedures and protocols, the Board moved quickly to undertake the process of appointing a Chief Executive Officer. In May 2007 an appointment was confirmed, with Ian Elliott taking up his position on 1 July 2007. In the period through year end 2008, the Board’s full attention has been directed to supporting the Chief Executive in the extensive consultative role he has undertaken. Effort has been put into obtaining high quality data regarding the safeguarding of children in Church-related activities. An important feature has been the development of best practice guidance and standards. The Board, principally through the CEO, has engaged with state agencies north and south, developing partnership and co-operation with them.
Evaluating the Current Situation
Over the past year and a half, the Board has initiated a process of gathering statistical data in order to assess the volume of safeguarding issues that arise within the Church, and to better understand the management of allegations, assessment of risk and response to those in need of support. Analysis of responses to the first request for information addressed to the 26 dioceses and 166 religious congregations revealed a lack of clarity, understanding of language and common approach to safeguarding across the Church in Ireland. It was clear that the various dioceses and religious congregations placed different interpretations on what was being requested. In order to obviate confusion, another request for information in December 2008 was confined to dioceses. An amended data collection questionnaire set out to facilitate a pilot study. All dioceses responded.
Through an examination of the returns and discussion with the dioceses of the cases behind some of the figures, it became clear that there is still variation in interpretation. The key issue was that some dioceses were being more rigorous than required by civil guidelines or Church standards. As a result, a total of fifty-six allegations of abuse were notified by the twenty-six dioceses and all these were reported to the statutory authorities (north and south, in Ireland) during 2008. Twenty-one involved deceased clergy. On analysis, all allegations covered a broad spectrum in interpretation. Some were little more than suspicion and anonymous innuendo. Included, for example, was one reported allegation where neither the alleged victim nor the alleged perpetrator could even be identified.
Having undertaken rigorous investigation of serious allegations in relation to at least one diocese, it was clear to the National Board that it would be inappropriate and unhelpful to accept these returns as a true reflection of safeguarding practice. However, the Board would accept that, from the information it has received, appropriate procedures are being followed within all dioceses with regard to referring new allegations that emerge against members of clergy to the statutory authorities for their investigation.
Over the next year the Board will continue to work with dioceses and congregations to obtain quantitative and qualitative information, to increase awareness of the processes necessary to safeguard children and young people, and to further improve safeguarding practice. In addition to seeking statistical data, National Office staff will liaise with diocesan and congregational designated staff to keep abreast of the extent of allegations as they emerge and how these are being responded to.