WHO’S IN CHARGE HERE? EFFECTIVE IMPLEMENTION OF CANADA’S INTERNATIONAL OBLIGATIONS WITH RESPECT TO THE RIGHTS OF CHILDREN Interim Report Standing Senate Committee on Human Rights Chair The Honourable Raynell Andreychuk Deputy Chair The Honourable Landon Pearson November 2005 MEMBERSHIP The Honourable Raynell Andreychuk, Chair The Honourable Landon Pearson, Deputy Chair and The Honourable Senators: *Jack Austin, P.C. (or William Rompkey, P.C.) George Baker, P.C. Sharon Carstairs, P.C. Marisa Ferretti Barth Marjory LeBreton *Noël A. Kinsella (or Terrance R. Stratton) Rose-Marie Losier-Cool Donald H. Oliver, Q.C. Vivienne Poy *Ex-officio members In addition, the Honourable Senators Maria Chaput, Ione Christensen, Ethel M. Cochrane, Roméo Dallaire, Elizabeth Hubley, Laurier LaPierre, Terry Mercer, Jim Munson, Lucie Pépin, Marie-P. Poulin (Charette) and Nancy Ruth were members of the Committee at various times during this study or participated in its work. Staff from the Parliamentary Information and Research Service of the Library of Parliament: Laura Barnett, Analyst Line Gravel Clerk of the Committee ORDER OF REFERENCE Extract from the Journals of the Senate, Wednesday, November 3, 2004: The Honourable Senator Andreychuk moved, seconded by the Honourable Senator LeBreton: That the Standing Senate Committee on Human Rights be authorized to examine and report upon Canada’s international obligations in regard to the rights and freedoms of children. In particular, the Committee shall be authorized to examine: Our obligations under the United Nations Convention on the Rights of the Child; and Whether Canada’s legislation as it applies to children meets our obligations under this Convention. That the Committee present its final report to the Senate no later than March 22, 2005, and that the Committee retain until April 30, 2005 all powers necessary to publicize its findings. The question being put on the motion, it was adopted. Extract from the Journals of the Senate, Wednesday, February 23, 2005: …that the date of presenting its final report be extended from March 22, 2005 to March 31, 2006 and that the Committee retain until April 30, 2006 all powers necessary to publicize its findings. The question being put on the motion, it was adopted. Paul Bélisle Clerk of the Senate ii TABLE OF CONTENTS CHAIR’S FOREWORD ..................................................................................................... 1 EXECUTIVE SUMMARY ................................................................................................ 3 This Study:.................................................................................................................. 3 Application of the Convention in Canada:.................................................................. 3 Problems in the Incorporation and Implementation of the Convention:..................... 4 The Committee’s Suggestions for Reform: ................................................................ 5 SUMMARY OF RECOMMENDATIONS ........................................................................ 7 CHAPTER ONE – RATIONALE AND ROLE OF THE COMMITTEE ......................... 8 A. INTRODUCTION .................................................................................................... 8 B. THE MANDATE...................................................................................................... 9 1. Examining Canada’s Role with Respect to Human Rights and the Convention ... 9 2. The Critical Importance of Focusing on Children’s Rights................................. 10 C. THIS REPORT AND THE COMMITTEE’S WORK............................................ 17 1. Fact Finding and an In-Depth Examination of the Canadian Context................. 18 2. This Interim Report.............................................................................................. 20 CHAPTER TWO – HISTORY AND BACKGROUND OF CHILDREN’S RIGHTS IN CANADIAN AND INTERNATIONAL HUMAN RIGHTS LAW ................................ 21 A. HISTORY OF CHILDREN’S RIGHTS IN CANADA.......................................... 21 1. Evolution of Approaches to Children in History ................................................. 21 2. Evolution of Approaches to Children in Canadian History ................................. 22 3. The History of Child Protection and Child Welfare in Canada ........................... 23 4. Children’s Rights in Child Protection and Child Welfare Laws.......................... 25 B. HISTORY OF THE CONVENTION ON THE RIGHTS OF THE CHILD .......... 26 1. The Origins of Children’s Rights in International Law ....................................... 26 2. The Creation of the Convention on the Rights of the Child................................. 27 3. The Participation of Non-Governmental Organizations ...................................... 29 4. Optional Protocols to the Convention on the Rights of the Child......................... 30 5. The Committee on the Rights of the Child ........................................................... 31 6. The Unique Nature of the Convention on the Rights of the Child ....................... 32 7. Canada and the Convention on the Rights of the Child........................................ 33 iii CHAPTER THREE – INTERNATIONAL TREATIES IN DOMESTIC LAW: ............ 35 THE IMPLEMENTATION PROCESS............................................................................ 35 A. RATIFICATION..................................................................................................... 35 B. RESERVATIONS................................................................................................... 35 C. APPLICATION AND IMPLEMENTATION ........................................................ 36 D. ENFORCEMENT MECHANISMS ....................................................................... 41 CHAPTER FOUR – IMPLEMENTING THE CONVENTION ON THE RIGHTS OF THE CHILD...................................................................................................................... 43 A. IMPLEMENTING THE CONVENTION .............................................................. 43 1. Implementation and Application.......................................................................... 43 2. Statutory and Judicial Interpretation.................................................................... 45 3. Reservations......................................................................................................... 47 B. ENFORCEMENT MECHANISM – REPORTING AND FOLLOW-UP WITH THE UN COMMITTEE ............................................................................................... 50 1. Role and Mandate of the Continuing Committee of Officials on Human Rights 50 2. Adequacy of the Reporting and Follow-Up Process in Canada .......................... 51 C. COMPLEXITIES OF IMPLEMENTATION......................................................... 56 1. Canada’s Federal Nature...................................................................................... 56 2. Lack of Awareness Concerning the Convention.................................................. 65 D. THE COMMITTEE’S FINDINGS......................................................................... 68 CHAPTER FIVE – MECHANISMS FOR CHANGE ..................................................... 71 A. INTRODUCTION .................................................................................................. 71 B. IMPLEMENTING INTERNATIONAL HUMAN RIGHTS OBLIGATIONS IN 71 CANADA – A TEMPLATE FOR RATIFICATION AND INCORPORATION ....... 71 1. The Treaty Negotiation Process........................................................................... 72 2. Signature and Ratification.................................................................................... 74 3. Post Ratification – Ensuring Effective Implementation of Canada’s .................. 78 International Treaty Obligations ............................................................................... 78 4. The Committee’s Comments ............................................................................... 81 C. IMPLEMENTING THE CONVENTION ON THE RIGHTS OF THE CHILD...... 82 1. Children’s Commissioner .................................................................................... 84 2. Federal Interdepartmental Implementation Working Group for Children........... 96 iv 3. Strengthening the Voluntary Sector................................................................... 104 4. Broader Issues of Funding ................................................................................. 106 D. CONCLUSIONS................................................................................................... 107 CHAPTER SIX – FUTURE PLANS: THE FINAL REPORT....................................... 109 A. HEALTH............................................................................................................... 109 B. ABORIGINAL CHILDREN................................................................................. 110 C. MINORITY CHILDREN...................................................................................... 110 D. MIGRANT CHILDREN....................................................................................... 111 E. SEXUALLY EXPLOITED CHILDREN.............................................................. 111 F. CHILDREN IN CONFLICT ................................................................................. 112 G. CHILD PROTECTION .......................................................................................