Violence Prevention and the Girl Child: Phase Two Report

RECOMMENDATIONS AND CONCLUSIONS

Helene Berman, Ph.D., R.N. & Yasmin Jiwani, Ph.D.

CONTENTS

INTRODUCTION
GENERAL RECOMMENDATIONS
RECOMMENDATIONS FOR GOVERNMENTS
RECOMMENDATIONS FOR RESEARCH
RECOMMENDATIONS FOR EDUCATION
RECOMMENDATIONS FOR HEALTH SERVICE PROVIDERS
RECOMMENDATIONS FOR MEDIA
RECOMMENDATIONS FOR PROGRAMS AND SERVICE DELIVERY
CONCLUDING NOTE AND FUTURE DIRECTIONS FOR RESEARCH
REFERENCES

INTRODUCTION

[States parties are urged to] Take all necessary measures and to institute legal reforms to ensure the full and equal enjoyment by the girl child of all human rights and fundamental freedoms, to take effective action against violations of those rights and freedoms and to base programmes and policies for the girl child on the rights of the child. (The Girl Child Resolution, General Assembly Resolutions, 54^th Session, 1999 [Sokhansanj, 2000:C3-10])

The most far-reaching recommendation we make concerns the need for the inclusion and recognition of the girl child in official policies, programs and legislation. The implementation of this recommendation requires a fundamental recognition of the specificities of the gendered nature of violence, particularly as it intersects with age, race, class, ability and sexual orientation. Hence, an understanding of the intersectional and interlocking character of violence should provide the framework for the development of policies, programs and legislation. More importantly, there is a desperate need to incorporate an analysis of violence that takes into consideration the notion of a continuum of violent attitudes, behaviours and practices. It is not enough to simply identify violence as occurring in the more extreme situations of murder, rape, and property crimes or to permit interventions in the form of apprehensions and confinements when girls and young women transgress normative laws or moral boundaries. There are clearly antecedent roots of violence which need to be identified, as they provide sites for effective and early intervention. The following recommendations outline the necessity for supporting, through funding and legitimacy, ground-up, community-based and community-driven programs and initiatives that are clearly tailored towards prevention and intervention. Our recommendations reflect what we believe is necessary for the reduction and elimination of violence in the lives of girls and the promotion of egalitarian interactions between genders. The interventions we propose should occur in situations of normalized and subtle forms of violence, as well as in its more extreme manifestations.

Phases I and II of this national research study reveal, above all else, the necessity of reconceptualizing violence such that the dynamics of inferiorization, 'otherness', and the resulting marginality are identified as key risk factors, deserving of a heightened level of attention, intervention and commitment of resources. Significant outcomes of marginalization include a vast range of adverse effects on physical and emotional health, as well as increased vulnerability to sexual exploitation and abuse. Again, these outcomes reflect a gendered response and demand gender-specific interventions.

Interventions need to be fashioned in a way that they include prevention and the promotion of gender equity as an integral part of the program or strategy. While linguistic convention forces an artificial separation between intervention and prevention as two separate, mutually exclusive categories, in reality, they intersect and are predicated on a single continuum. The recognition of such a continuum would enable policy makers to fund initiatives which might be classified as either prevention or intervention, but which in reality offer a range of hybrid programmatic interventions.

The following recommendations are organized according to their generality, the particular level of government, and to non-governmental organizations. As well, recommendations are presented in a manner that corresponds to the specific institutional domains that are mandated to provide services in the areas of education, health, and social services.

In the final analysis, our recommendations are formulated on the axiomatic principle that it is not the girls that need to be 'fixed' but rather the institutions and governments that are mandated to serve and protect the best interests of the girl child.

GENERAL RECOMMENDATIONS

That the gendered nature of violence is fully recognized with awareness of the multiple ways in which violence manifests and impacts on the lives of girls and young women.
That the legitimate status of the girl child be recognized and named in the public realm, and that the social obligations which arise from her gendered experiences of violence be clearly stated.
That additional funding resources that reach out to the girl child be provided rather than waiting for her to overcome internal and external obstacles to reach out to the system.
- Not all forms of violence land on the radar screen of the criminal justice system. Nor is it typical for the girl child to reach out to parents, teachers, or even the health care system unless encountering more extreme forms of violence.
That programs and policies provide emotional, cognitive, and physical spaces that enable the girl child to engage in healthy relationships and give voice to the full range of her thoughts, feelings, and experiences.
That the context of sexuality and attitudes about male and female roles generally, as well as the societal conceptualization and sexualization of youth be acknowledged as contributing factors to violence and sexual exploitation.

RECOMMENDATIONS FOR GOVERNMENTS

That the federal, provincial and territorial governments cooperate to implement working groups comprising front-line service providers, researchers, advocates, policy makers, and legislators. These working groups should also be mandated to monitor compliance and work towards the harmonization of domestic policies and legislation so that they are in alignment with Canada's international obligations.
That the constitutional divide between federal ratification and provincial implementation of treaties be eliminated. The first step is to emphasize that this division is a violation of the spirit of the treaties, and include this information in all research which deals with international human rights instruments.
That popular education tools about women's equality rights and international human rights instruments for women's and girl's equality-seeking groups be developed and disseminated.
That the federal government play a direct role in promoting secure funding for national and local NGO's by utilizing their 3-year pilot project funds to lever a greater commitment on the part of provincial governments towards the maintenance of services demonstrated to be effective.
- And that the federal government fund studies required to demonstrate the effectiveness of these programs.
That governments sponsor national and regional workshops and conferences to assist service providers to share and develop best practices in the field.
That governments critically evaluate and amend legislation such as the provision to obtain parental/guardian consent from minors for access to services and assistance.
That governments allocate a percentage of their "housing for the homeless" funds specifically to street youth and children and youth at risk for involvement in prostitution.
- Shelter services and safe homes are desperately needed in many communities.
That governments allocate enriched funding for employment readiness and employment training courses for children and youth exploited through prostitution, immigrant and refugee youth and those marginalized by virtue of disability, sexuality and class.
That governments provide additional funding and support to immigrant and refugee girls and their families.
That governments implement their commitment to publicize and communicate to the Canadian people the nature and extent of their international obligations.
- These obligations should be contextualized within the current framework of federal, provincial, and territorial responsibilities.
That governments provide basic services such as food, shelter, clothing and safety for girls and young women who have experienced violence or who are at risk of experiencing such violence.
That governments provide stable and adequate funding to community organizations to facilitate the provision of such basic necessities as food, shelter, clothing, and above all, safety to girls and young women.
That governments establish securely-funded organizations that cater specifically to the wide-ranging needs of girls and young women.
- That funding for such organizations not be vulnerable to the political 'winds of change'.
That there be improved methods of consultation with governments about Canada's international positions.
That NGOs be supported to develop and disseminate evaluation tools (such as shadow reports and report cards) to be submitted to government and the UN during Canada's reporting periods.
That international human rights law and norms be used to interpret the Charter and other domestic laws in domestic equality litigation. This should include the Conventions themselves, General Recommendations of relevant Committees, Concluding Remarks of relevant Committees on Canada's reports under Conventions and any documented discussion on Canada's reports between Canada and the relevant Committee.

RECOMMENDATIONS FOR RESEARCH

That governments promote and fund research that specifically outlines the health sequelae of different forms of violence.
- This includes research that focuses on the impact of systemic forms of violence such as racism, ableism, sexuality and experiences of marginalization.
That governments promote and fund gender-based research that centres the voices of girls, and their interaction with adult caregivers and service providers.
That research funded by governments embody a critical anti-racist perspective in keeping with the intent of such international instruments as the Convention for the Elimination of Racial Discrimination.
That research be conducted in a feminist participatory action framework and research partners make every effort to disseminate the results in a community-friendly fashion which simultaneously inspires community action.
That non-traditional forms of research be encouraged, particularly those that involve girls and young women as full partners in all phases of the research process.
- Priority should be placed on those projects that include girls and young women from diverse and marginalized communities.
That community organizations be encouraged and provided full recognition and compensation for their partnership in all phases of the research process.
That qualitative research be encouraged to examine the impact of specific legislation and programs on the immigrant and refugee girl-child.

RECOMMENDATIONS FOR EDUCATION

That adequate funding be provided for the development, assessment and dissemination of effective violence prevention and intervention programs and strategies.
- That, in recognition of the intersectionality of gendered violence and racism, such programs and strategies be required to incorporate an anti-racism, anti-oppression framework.
That violence prevention/intervention programs be fully institutionalized in schools by incorporating them into the mandates of various provincial ministries of education and by integrating them into the curricula as compulsory components.
- That funding for such prevention/intervention programs include compensation for a coordinator/facilitator.
That schools be supported to implement and evaluate phases of violence prevention/intervention programming so as to ensure their continual refinement and effectiveness.
That school curricula reflect culturally diverse perspectives and information and that these be framed within an anti-racism paradigm.
That testing methods used within schools are free of cultural and gender bias.
That the participation of all girls and most especially marginalized girls be encouraged in work co-op programs, mentoring and curriculum development.
That teacher training and education about racism, and its fundamental link with the perpetuation of gendered violence, be required.
- Such training extends to an awareness and appreciation of the potentially deleterious effects of discrimination on academic performance and general behaviour.
That the development and sustainability of peer mentoring programs for immigrant/refugee girls from racialized communities be fostered.
That training to school personnel be provided in order for them to be able to respond to everyday instances of racism and sexism.
That school counsellors be trained within an anti-racism paradigm so that their services are not mere cultural prescriptions but are based on a recognition of unequal power relations and social hierarchies extant in society.
That media literacy courses be made a mandatory component of school curricula and that initiatives towards this end be encouraged and funded within the non-profit sector and the private sector of media organizations.
- That such initiatives equip girls and young women, especially those from racialized communities, to tell their own stories.
That girls and young women be taught strategies to challenge and change harmful behaviour that they encounter, and that such knowledge be a critical component of any initiative. These strategies will focus on individually and collectively empowering girls and young women, while simultaneously eliminating any structural propensity for victim-blaming. Such knowledge will be a critical component of any initiative.
That Canadians are educated on the extreme poverty levels of immigrant and refugee families and visible minority groups generally. That such education emphasize that this is the product of international and domestic institutionalized racism.
That immigrant and refugee and visible minority youth are educated on their rights under the various provincial and the federal Human Rights Acts. It is imperative that these youth be equipped to recognize when racism is a factor is hiring, and use their legislated recourse to address the wrongdoing.
That schools develop comprehensive strategies to increase awareness of human rights, especially children's rights.

RECOMMENDATIONS FOR HEALTH SERVICE PROVIDERS

That health professionals fully recognize violence as a critical determinant of health.
- That health services respond to the many and varied effects of the entire spectrum of violence.
That health care providers recognize that the multitude of health problems experienced by girls are often the result of exposure to and experiences of violence.
That health care providers are educated to elicit and respond to the particular vulnerabilities of girls and young women.
That there is provision for more generalized health services for sexually exploited girls and young women as the health impacts of violence are often ill-defined.
That health care service providers receive training and education regarding the impacts of marginalization and the pernicious effects of subtle and systemic forms of violence.
That 'one stop' health care facilities which provide a variety of services addressing different health issues for girls and young women be established with their full participation.
That consent requirements be waived in situations where they might impede the delivery of, and access to, health care services for girls and young women.
That mandatory reporting requirements not interfere with access to health services for young women and girls who are experiencing violence.
That violence and gender inequality be included as integral topics of education and communication in all health prevention and promotion initiatives.
That there is a consistent delivery of health care services to all marginalized girls and young women and that this is predicated on principles of universal access without regard to the official status or age of this population.

RECOMMENDATIONS FOR MEDIA

That a serious attempt be made to reflect a more representative portrayal of racialized communities and perspectives in the Canadian mass media as per Canada's international obligations, domestic policies and legislation.
That educational, consciousness-raising manuals, videos, CD-ROMs, and other forms of programming and educational material be developed; that these be accessible to teachers, employers, and those who are interacting with girls and young women.
That girls and young women be involved in the production and dissemination of their own forms of media, and that the relevant agencies be encouraged to distribute work that reflects their concerns and realities.
That governments at all levels are encouraged to meet our obligations under international law regarding children's exposure to harmful media content.

RECOMMENDATIONS FOR PROGRAMS AND SERVICE DELIVERY

That immigrant settlement services be provided with funding to hire cultural liaison workers and additional services for settlement in order to reduce the isolation of girls and their families.
That counsellors and others who are familiar with different cultural traditions be hired within schools and service organizations.
- That such counsellors need to be trained within an anti-racism paradigm so that their services are not mere cultural.
That substance abuse/addiction be formally recognized as a co-determinant with other forms of violence, and most especially sexual exploitation.
That services aimed at the prevention of violence in the lives of girls be responsive to those less visible and more subtle, yet nevertheless real, needs of girls and young women who have experienced violence in its many forms.
- That such services take advantage of the window of opportunity that opens up when girls seek out voluntary services on their own initiative rather than being coerced to participate in the latter as a result of state intervention.
That securely funded programs with a mandate to provide services to girls exposed to violence be required not to exert a control and coercive orientation.
- That such programs have a voluntary character that facilitates choice on the part of girls and young women.
That generic and specialized services for girls who have experienced violence be available and accessible.
- That services be designed to respond to the range of outcomes corresponding to the continuum of violence.
That girls be given safe gender-segregated opportunities to discuss violence in their lives.
That interventions be developed that capture the positive attention of boys who can be negatively affected by programming that is not appropriate to their stage of awareness.
That the girl child be taught strategies of healthy resistance.
- That health-seeking behaviours which represent resistance to oppressive circumstances be redefined as indicators of physical and emotional well-being.
That a feminist process evaluation of the programs that are currently in place, and those being initiated, be encouraged.
That economically restricted rural and isolated communities be assisted to develop human and other resources necessary to implement action and change.

CONCLUDING NOTE AND FUTURE DIRECTIONS FOR RESEARCH

When we began the first phase of this research, there were very few published studies dealing with the situation of the girl child in Canada. While a small number of scholars had made efforts to include a gender analysis of policies and practices focusing on girls (Holmes & Silverman, 1992; Russell, 1996; Schramm, 1998; Suleman & McLarty, 1997; Tipper, 1997), much of the research that had been conducted was confined to theses and dissertations (Handa, 1997; Mogg, 1991). Over the last two years, we have been gratified to see an increase in the attention to, and communication of, information about girls in Canada. However, much still remains to be done.

Some of the lines of inquiry that need to be pursued include tracing the health impacts of marginalization as they intertwine with developmental issues for the girl child; mapping the socializing influence of the mass media on identity formation and sense of belonging; identifying the ways in which the policy of multiculturalism is interpreted and internalized by racialized girls in an effort to make sense of their location; examining the ways in which legal discourses construct the girl child in terms of her age, race, class, sexual orientation and ability (see for example, Razack, 1994); and, delineating barriers to the access of services and support for differently situated girls.

The specific issues impacting on Aboriginal girls are a critical area of concern for both policy makers and advocates. The gendered nature of oppression that these girls encounter within the context of a colonized society needs further examination. As well, mechanisms by which to facilitate the exit of girls from oppressive conditions of abuse need to be specified and supported. This is especially true for marginalized girls. The subtle effects of sexual harassment and its pervasiveness need to be mapped within terrains that are occupied by the developing girl child as she attains maturity.

While the five studies carried out as part of this project addressed many aspects of violence in the lives of girls, none included girls younger than the age of eight years as research participants. Given the reality that socialization processes begin early, often before birth, the need for research with this population is essential. In order to conduct this type of research, the ethics requirements posed by university committees have to embrace some flexibility and reflect appreciation of the varied effects of violence. Ethics requirements should be harmonized with the rights of the girl child, especially in terms of her right to tell her own story.

This report is another step in documenting the conditions impacting upon and influencing the lives of Canadian girls and young women. As such, it remains one step in a long journey toward social change. This journey involves a collaborative partnership among researchers, advocates, service providers, and policy makers.

REFERENCES

Handa, A. (1997). Caught Between Omissions: Exploring "Culture Conflict" Among Second Generation South Asian Women in Canada. Toronto: University of Toronto, Graduate Dept. of Sociology and Education, Ph.D. Thesis.

Holmes, J. & Leslau Silverman, E. (March 1992). We're Here; Listen to Us: A Survey of Young Women in Canada. Ottawa, ON: Canadian Advisory Counsel on the Status of Women.

Mogg, J. (1991). The Experience of Bicultural Conflict By Vietnamese Adolescent Girls in Greater Vancouver. Vancouver: Simon Fraser University, M.A. Thesis.

Razack, S. (1994). From consent to responsibility, from pity to respect: subtexts in cases of sexual violence involving girls and women with developmental disabilities. Law and Social Inquiry, 19, (4): 891-922.

Russell, S. (1996) The Girl Child (p. 108). Ottawa: Canadian Beijing Facilitating Committee.

Schramm, H. (1998). Young Women who use Violence: Myths and Facts. Calgary, AB: Elizabeth Fry Society of Calgary.

Sokhansanj, B. (2000). A Survey of International Human Rights Documents Affecting The Refugee and Immigrant Girl-Child in Canada (March 12). Unpublished. Vancouver: FREDA.

Suleman, Z. & McLarty, H. (1997). Falling Through the Gaps: Gaps in Services for Young Women Survivors of Sexual Assault. Vancouver: FREDA.

Tipper, J. (1997). The Canadian Girl-Child: Determinants of Health and Well-Being of Girls and Young Women. Ottawa: Status of Women Canada.

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