Systematicchildabuseincidents inachildren ’sresidential homeinHongKong: regulatoryandcriminallaw reformproposals
Wing-hongChui
DepartmentofAppliedSocialSciences,TheHongKongPolytechnicUniversity, HongKongSAR,China,and HenryKaoandAaronH.L.Wong
DepartmentofSocialandBehaviouralSciences,CityUniversityofHongKong, HongKongSAR,China
Abstract
Purpose – Thepaperaimstorecommendlegalandregulatoryreformstobetterpreventchildabusein childcareinstitutionsinHongKong.
Design/methodology/approach – Asummaryofinvestigationreportandnewsreportsarereferredtoin describingtheabuseincidentswhichoccurredinachildren’sresidentialhome.RoutineActivityTheory(RAT) isusedastheframeworkforidentifyingthecauses.Localandoverseaslegislation,regulations,caselaw,and policiesareanalysedtoproviderecommendationsforreforms.
Findings – Therearesystematicfailuressuchasworkloadissues,inadequatesupervision,andtheabsenceof continuingprofessionaldevelopment(CPD)thatcontributedtotheincidents.Theregulationsgoverningthe operationofchildcarecentresandcriminallawsagainstchildabusearelongoverdueforanupdateinHong Kong.Ontheinstitutionalside,thispaperrecommendsenactingregulationsthatmandateCPD,lowerthe staff-to-childratio,andstrengthentheSocialWelfareDepartment’s(SWD)supervisorypowersoverchildcare centres.Fromthecriminallawperspective,itisrecommendedthat “reasonablechastisement” beabolishedasa defenceofcorporalpunishment,andthattherebenewoffencesforfailuretoreportsuspectedchildabuse incidentsandcausingorallowingthedeath/seriousharmofachild.
Originality/value – Thechildabuseincidents,occurringinachildcareinstitution,havedrawnwidepublic concern.Reformisrequiredtoprotectvulnerablechildrenandregainpublicconfidence.
Keywords Children’sresidentialhome,Childabuse,Regulatoryreform,Criminallaw,Legalreform Papertype Researchpaper
Introduction
Theterm “childabuse” maybeinterpretedas “alltypesofphysicaland/oremotional ill-treatment,sexualabuse,neglect,negligenceandcommercialorotherexploitation,which
©Wing-hongChui,HenryKaoandAaronH.L.Wong.Publishedin PublicAdministrationandPolicy. PublishedbyEmeraldPublishingLimited.ThisarticleispublishedundertheCreativeCommons Attribution(CCBY4.0)license.Anyonemayreproduce,distribute,translateandcreatederivativeworks ofthisarticle(forbothcommercialandnon-commercialpurposes),subjecttofullattributiontothe originalpublicationandauthors.Thefulltermsofthislicensemaybeseenat http://creativecommons. org/licences/by/4.0/legalcode
Theauthorsaregratefultotheanonymousreviewersfortheirconstructivecommentsonearlier draftsofthemanuscript.TheworkinthispaperwaspartlysupportedbyagrantofferedbythePolicy ResearchCentreforInnovationandTechnologyatTheHongKongPolytechnicUniversity.
Childabuse inachildren’ s residential home 295
Received22April2023
Revised23July2023
Accepted1September2023
Figure1. Organisationofthe CRHoftheHKSPC
resultsinactualorpotentialharmtothechild’shealth,survival,developmentordignityinthe contextofarelationshipofresponsibility,trustorpower” (WorldHealthOrganization,2022). InDecember2021,itwasrevealedthattheHongKongSocietyfortheProtectionofChildren (HKSPC)failedtopreventitsstafffrominflictingphysicalandemotionalabuseto40children underitscare.Theseincidentsraisethequestionofwhatactionsshouldbetakentoprevent similarincidentsinfuture.
Thispaperisstructuredintofoursections.Thefirstsectionprovidesanoverviewofthe childabuseincidentsattheChild’sResidentialHome(CRH)ofHKSPC.Thesecondsection analysesthecausesoftheincidentsthroughtheapplicationofRAT.Thethirdsection outlinestheresearchmethodologythispaperemploys.Thefinalsectionexamineshowthe inadequaciesoftheregulatoryframeworkgoverningCRHsandcriminallawsagainstchild abusehavecontributedtooraggravatedthecausesoftheincidentsandrecommendslegal reforms.
Anoverviewofthechildabuseincidents
TheCRHprovidesround-the-clockresidentialserviceforchildrenagedbelowthreewhowere abandoned,orphaned,comefromfamiliesfacingsocialproblems,orwerereferredtoitby courtorder(HKSPC,2023).Itisrequiredtomeettheessentialservicerequirementsand servicequalitystandardsunderitsFundingandServiceAgreementwiththeSWDand complywithstatutoryrequirements(HKSARG,2022).Itsorganisationisasfollows: (see Figure1)
The HKSPC The Executive Committee Director
The CRH of the HKSPC Superintendent (The Management)
Assistant Superintendent (The Management)
Chief CCWs(The Management)
Child Care Workers (CCWs)
Source: By authors
Below Table1 isachronologyofthechildabuseincidents:
DatesEvents
Table1. Achronologyofthe childabuseincidents
18/12/2021TheHKSPCreceivedanemailallegingthatsomeofitsstaffwereabusingchildrenundertheir care 03/01/2022AnIndependentReviewCommittee(IRC)wasformedtoinvestigatetheincidentsandprovide recommendationstopreventsimilarincidents
(continued )
DatesEvents
26/01/2022HavingreviewedtheCRH’sCCTVfootage,theIRCdiscoveredthatsomeCCWsslapped childrenintheface,pulledtheirears,andthrewthemontotheground.TheIRCopinedthat suchconductmayconstitutechildabuse
17/03/2022Atleastthirty-twoCRHstaffwerearrestedonsuspicionofassaultingorneglectingforty childrenintheircare.Twenty-sevenofthemwereprosecuted(Leung,2022).
31/03/2022TheHKSPCannouncedthattheCRH’sserviceswillbefundamentallyreformedoverthenext ninemonths,with “improved,additionaltraining,expandedresources,andhigherstaffing ratios”
11/04/2022Thestaff-to-childratioofCRHwasloweredfrom1:7to1:5.NinetypercentoftheCRH’scurrent staffwerenewlyrecruited(OrientalDailyNews,2022)
28/06/2023FifteenoftheCRHstaffwereconvictedwhileothercriminalproceedingsremainongoing
AnalysingthecausesoftheincidentsthroughRAT
CohenandFelson(1979) suggestthatadirect-contactpredatorycrimeoccurswhenthree elementsconvergeatthesametimeandspace:motivatedoffenders,suitabletargets,andthe absenceofcapableguardians.RAThasbeenextendedtoexplainchildvictimization(Culatta etal.,2020; ReidandSullivan,2009).Asphysicalandemotionalabuseinflictedonchildrenisa direct-contactpredatorycrime,RATwillbeappliedtoanalysethecausesoftheincidents (FelsonandBoba,2010).ThefollowinganalysiscorrespondstoRAT’selements:(see Figure2)
Motivatedoffender
Amotivatedoffenderhas “criminalinclinationsandtheabilitytocarryoutthose inclinations” (CohenandFelson,1979,p.590).Inthepresentcase,CCWswereresponsiblefor ensuringthesafetyandtakingcareofchildrenintheCRH(HKSPC,2022).Astheywererough intheirphysicalhandlingofthechildren,CCWsareidentifiedasthemotivatedoffenders.
ItiscrucialtoanalysethecircumstanceswhichbredCCWs’ criminalinclinationsto maltreatchildren.Firstly,theCCWshadapoorpracticeofdiscipliningchildren,focusingon controllingchildrenquicklybyusingviolentmethodswithoutregardfortheirfeelings, emotions,anddignity.Theresultofthiswasacultureofroughhandlingofchildrenamong CCWstocompelsubmissionofchildren(Kong,2022).AlthoughCCWsmightnothavecaused anyapparentinjuriestochildrenintheirroughhandling,thelatterwereindiscomfortand pain(HKSPC,2022).
Secondly,thecultureofroughhandlingwasexacerbatedbythetremendouspressurethat CCWsface.CCWswererequiredbothtopayattentiontochildrenandperformadministrative work.Thestaffturnoverratehasalsobeenhighinrecentyears.Withtheheavyworkload,
Suitable Targets
Children aged below three and referred to the CRH
Child Abuse Incidents within the CRH of the HKSPC
Motivated Offenders CCWs
Source: By authors
Capable Guardians Management (including Chief CCWs, Assistant Superintendent, and Superintendent)
Director of the HKSPC
Executive Committee of the HKSPC
SWD
Table1.
Figure2. Thethreeelementsofa direct-contact predatorycrime,as identifiedbyRATand appliedtothiscase
colleaguesdiscouragednewworkersfromcomfortingchildrentosavetimeforothertasks (HKSPC,2022).ThesediscouragementspromptedanatmosphereamongCCWsadopting “uncaringattitudesandcomplicitoblivion” towardchildrenintheircare(HKSPC,2022,para.20).
Thirdly,CCWslackedrespectforthephysicalandemotionalwell-beingofchildrenand hadlittleunderstandingofchildprotection.Astonishingly,thelastchildabusetrainingheld forCCWswasin2015(HKSPC,2022).Thelackoftrainingisidentifiedasacommontheme amongmassabusesinCRHs(Stein,2006).
SinceroughhandlingofchildrenhadbeenanacceptednormamongCCWs,theyalerted oneanotherwhentheirsupervisorswerenearbyandrefrainedfromreportingany irregularity.Thenormfurtherdevelopedandformedaviciouscyclethatdiminishedthe standardofcaresubstantiallyovertime(HKSPC,2022).
Suitabletargets
CohenandFelson(1979) define “suitabletargets” aspeoplewholackthephysicalabilitytoresist andareeasilyvisibleandaccessibletothemotivatedoffender.Giventhatchildrenhaveasmaller physicalstature,aresociallyandpsychologicallyimmature,andaredependentuponadultsfor protection,theyareunabletoresisteveniftheyareawareofanyphysicalorpsychological abuses(Finkelhor,2007; ReidandSullivan,2009).AschildrenreferredtotheCRHareunableto resistorcomplainandeasilyaccessibletoCCWs,theyareidentifiedasthesuitabletargets.
Capableguardian
Acapableguardianis “anypersonorthingthatdiscouragescrimefromoccurring” (Cohen andFelson,1979; Reynald,2019,p.13).Itpreventscrimebyservingasareminderthat someoneislooking(Felson,1995).InCRHs,dailysupervisionandnecessaryinterventionare crucialcomponentsofeffectiveguardianship(Reynald,2019).
Themanagement
Themanagement(includingChiefCCWs,theAssistantSuperintendent,andthe Superintendent)wasresponsibleforoverseeingthefrontlineoperationsand administrativetasksoftheCRH,includingmonitoringtheperformanceofCCWsand reportingtotheExecutiveCommittee(HKSPC,2022).Asitssupervisoryfunctionsarecrucial tothepreventionofchildabuse,themanagementassumestheroleofacapableguardian. Nevertheless,itfailedtopreventthemotivatedoffendersfromoffending.
Therewerefouraspectsoffailurefromthemanagement(HKSPC,2022).Firstly,the managementwaswilfullyblindtoCCWs’ roughhandlingofchildren.Itonlygavemild reminderstoCCWsabouttheirduties,towhichthelatterrespondedperfunctorilyornotatall.It claimedthatCCWsweretrustworthyandseldommonitoredtheirperformanceorgavethem anyfeedback.EvenwhenthemanagementstipulatedoccasionalrequirementsonCCWs,itdid notaudittheircompliance.Further,whenitrealisedthatabusesmighthaveoccurred,itdidnot intervenetimelyorreporttothepolice.Secondly,therewasnoeffectivesupervisory mechanism.Themanagementtooklittleornodisciplinaryactionagainstprofessional malpractice.Furthermore,itdidnotregularlyreviewCCTVfootagetodetectpossibleincidents. TheabsenceofscrutinycontributedtoCCWs’ fearlesscontinuanceoftheirabuses.Thirdly,the managementwasunabletoperformitssupervisoryfunctionsduetoitstremendousworkload. TheChiefCCWswererequiredtosupervisestaff,handleadministrativework,andresolve mundanematters.Itsfocuswasalsodivertedbyadministrativeissues.Fourthly,the managementdidnotencourageinternalreportingofchildabuse.Thelackofinternalreporting wasattributabletothemanagement’sindicationthatitwouldacceptthepracticeofrough handlingandCCWs’ fearthatreportingwouldleadtoisolationfromtheircolleagues(Li,2022). Themanagement,ascapableguardian,infailingtodischargeitssupervisoryduties,wasinept inpreventingthemotivatedoffenders(i.e.,CCWs)fromabusingchildren.
TheOrganisation
TheDirectoroftheHKSPC. ThedirectoroftheHKSPC,whoisaccountablefortheentire administrationoftheCRH,issupposedtobe acapableguardian.However,shereported thatshewasoblivioustotheincidents,madefewvisitstotheCRH,andneverreviewed theCCTVs,allofwhichprovidedampleoppo rtunitiesforthemotivatedoffenders ( Li,2022 ).
TheExecutiveCommittee. TheHKSPC’sExecutiveCommitteewasresponsiblefor supervisingandmonitoringtheperformanceofthemanagementandCCWs(HKSPC,2022). Givenitsbroadsupervisorypowers,theExecutiveCommitteewascapableofpreventing CCWsfromabusingchildren.However,itfailedtoprescribeanymonitoringproceduresat theorganisationallevel.TherewerealsonodelegatestooverseechildprotectionortheCRH’ s management,norwerethereanycomplaint-handlingorwhistleblowingmechanismsfor suspectedcasesofchildabuse.
TheSWD. TheSWDisobligedtoinspecttheCRH.However,eventhoughtheSWD conductedsixfullinspectionsoftheCRHin2021,noabnormalitiesorsuspectedcasesof abusewerediscovered(Lao,2022).Assuchvisitsdidnotincluderandomchecks,instancesof childabusewerenotreadilydetectable.Norwerethereanyhealthinspectorsand professionalsduringinspections( LabourandWelfareBureauandSocialWelfare Department,2022).Thisprovidedabreedinggroundformotivatedoffenders.
Researchmethodology
Thissectionoutlinestheresearchmethodologythatthispaperemploysinmakingreform recommendationsontheregulatoryframeworkgoverningCRHsandcriminallawsagainst childabuse.
HongKonglegislationandgovernmentpolicies
Relevantlegislation,cases,andgovernmentdocumentswereexaminedasadesktopstudy designforunderstandingHongKong’sregulatoryframeworkgoverningCRHsandcriminal lawsagainstchildabuse.Itsupplementstheaboveanalysisonthecausesoftheincidentsand laysthefoundationforlegalrecommendationsmade.
ThefollowinglegislationandcasesinHongKongarescrutinised:
(1)ChildCareServicesOrdinance(Cap.243)(CCSO)
(2)ChildCareServicesRegulations(Cap.243A)(CCSR)
(3)OffencesAgainstthePersonOrdinance(Cap.212)(OAPO)
(4) R.v.WilliamRyanErisman [1988]1HKLR370
Relatedgovernmentdocumentsarealsoanalysed:
(1)ServiceQualityStandards(SQSs)andCriteria
(2)OperationManualforPre-PrimaryInstitutions
(3)ServicePerformanceMonitoringSystemPerformanceAssessmentManual(SPMSPAM)
(4)ProtectingChildrenfromMaltreatment ProceduralGuideforMulti-disciplinary Co-operation(ProceduralGuidelineforProtectingChildren)
(5)TheLawReformCommission(LRC)ofHongKong:ConsultationPaperandReporton CausingorAllowingtheDeathofaChildorVulnerableAdult
Childabuse
Legislationinothercommonlawjurisdictions
RelevantlegislationinothercommonlawjurisdictionssuchastheUnitedKingdom(“UK”) andAustraliaarereviewedbecause:
(1)SamewithHongKong,theUKandAustraliaarecommonlawjurisdictionswhich allowforameaningfulcomparativeexerciseinsearchforbetterproceduresand measuresintheregulatoryandcriminallawframework.
(2)TheUK’slegalregimehasundergonefundamentalreformintherecentdecade.Also, someAustralianstatesmandateareportingdutywhichisnoveltoHongKong.The developmentinthesejurisdictionsisofimmensereferencevalue.
Thefollowingdocumentsarescrutinised:
(1)TheChildren’sHomes(England)Regulations2015(TCH(E)R)
(2)TheEarlyYearsFoundationStage(WelfareRequirements)Regulations2012 (TEYFS(WR)R)
(3)StatutoryFrameworkfortheEarlyYearsFoundationStage(TheEYFSFramework)
(4)HerMajesty’sChiefInspectorofEducation,Children’sServices,andSkills(Feesand FrequencyofInspections)(Children’sHomes,etc.)RegulationsforInspection,2015 (TheInspectionRegulations)
(5)InspectionHandbook:Children’sHomes
(6)Children(AbolitionofDefenceofReasonablePunishment)(Wales)Act2020 (C(ADRP)(W)A)
(7)ChildrenandYoungPeople(Safety)Act2017(SouthAustralia)(CYP(S)A)
(8)CriminalLawConsolidationAct1935(SouthAustralia)(CLCA)
Athree-stepreviewprocessisadoptedtoidentifyrecommendations:
(1)Theselectedlegislationanddocumentswereexamined.
(2)TheUK’slegalregimehasbeenselectedastheprimarymodeltoreferencefor institutionalreformasitslawsaremorerecentthanHongKong’safteranamendment andtherehasbeenagrowingemphasisontheinstitutionalside.OtherUKand AustralianActsarehelpfulreferencesforproposingcriminallawreform.
(3)Havinganalysedtherelationshipbetweenthecausesoftheincidentsanddeficiencies inHongKong’sregime,otherdocuments(e.g.,consultationpapers)relevantto selectedlawshavebeenstudiedtoreachthefinalrecommendation.
Secondarysources
TheExecutiveSummaryoftheIRC’sFirstInterimReportandothernewsreportsarestudied toidentifythecausesoftheincidents.
Legalrecommendationsforpreventingsimilarincidents
ThispaperhaspreviouslyanalysedthecausesoftheincidentsthroughRAT.Itissuggested thatHongKong’sunsatisfactorystateoflaw,bothinstitutionalandcriminal,hascontributed tooraggravatedsuchcauses.Immediatelegalreformisthereforerequired.Withreferenceto therelevantUKandAustralianlaws,thissectionwillmakelegalreformrecommendationsto strengthenchildprotectioninHongKongandpreventsimilarincidentsfromreoccurring.
TheinstitutionalframeworkgoverningtheoperationofCRHs
1.EnactingmandatoryCPDregulation
ThroughRAT,itisobservedthattheabsenceofstafftraining(orCPD)onchildabusehad bredCCWs’ lackofrespectforthewell-beinganddignityofchildren.Thiscreatedanormof roughhandlingthatencouragedCCWstoemployviolentmethodstoensuresubmissionof children.Underthisnorm,CCWsalsoshieldedoneanotherandrefrainedfromreportingany irregularitytothemanagement.Therefore,CCWshavebecomethemotivatedoffenders. TherearecurrentlynorequirementsforCCWstoundertakeCPDinHongKong.
ToqualifyasaCCW,Regulation3(1)(b)oftheCCSRsimplyrequiresonetocompleteacourse approvedbytheDirectorofSocialWelfare(DSW)(HKSARG,2008).Neitherdoesthe OperationalManual(whichelaboratesuponthestatutoryobligationsthattheCRHshould follow)requirethemanagementtoprovideCPDforCCWs(EducationBureau,2021).
CCWshavehighlydemandingrolesanddutieswhichrequireexperienceandthepersonal skillsnecessarytofostertrustingrelationshipswithchildren(Bettmann etal.,2015).Quality trainingiscrucialinensuringchildren’sneedsaremetandthattheyachievepositive outcomes(DepartmentforEducation[DfE],2014).CPDisalsonecessarytoequipCCWswith therequisiteskills(e.g.,attachment-informedcare)tosupportvulnerablechildren(Steelsand Simpson,2017).
Therefore,itisrecommendedthataprovisionmirroringRegulation33(4)(a)oftheTCH(E)R, whichrequiresresidentialhomestoensureallemployeesundertakeappropriateCPDcourses (HMGovernment,2015a),beincorporatedintotheCCSR.Topicsincludingchildpsychology, behaviourmanagement,childprotection,andmandatoryreportingshouldbecovered(White etal.,2015).CCWsshouldbegiventheopportunitytodiscussthechallengesthatthey encounteredatwork(TheRTKLtd.,2021).Thisrecommendationaimstopreventthenormof roughhandlingbyinculcatingCCWswiththeimportanceofchildprotection.MandatoryCPD couldenhancethecompetencyofCCWsbystrengtheningtheirconfidenceandenthusiasmin addressingthechallengesbroughtbyvulnerablechildren(Rohta,2021).
2.Loweringthestaff-to-childratio
ThroughRAT,itissuggestedthatthetremendousworkloadfacedbyCCWsandthe managementcontributedtotheincidents.TheunbearableworkpressureintheCRHresulted inahighturnoverrateofCCWs,whichcontributedtothedeteriorationofgoodpracticesand thenormofroughhandling(Kong,2022).ThistransformedCCWsintomotivatedoffenders. Furthermore,themanagementwasunabletodischargeitsroleasacapableguardian,asits timewasprimarilyoccupiedbyadministrativeissues.
Theregulatoryregimecontributedtothenormofroughhandlingandbredmotivated offenders.Regulation6oftheCCSRstipulatesa1:8staff-to-childratioduringthedaytime(8 am–8pm)anda1:12ratioduringthenight-time(8pm–8am).Theregulationislegally bindingonallChildCareCentres(CCCs)andwasfollowedbytheCRH(HKSARG,2008).The calculationofstaffincludesCCWsandsupervisorspresentintheCRH(EducationBureau, 2021).Attheoperationallevel,thestaff-to-childratiooftheCRHis1:6(forchildrenaged0–below2)and1:11(forchildrenaged2–below3)(CommitteeonReviewofResidentialChild CareandRelatedServices,2022).AschildrenattheCRHarebelowthreeandincapableof controllingthemselveswell(Tao etal.,2014),itisexpectedthatCCWshavetoinvest tremendouseffortandtimetotakecareofalargenumberofchildren.
IntheUK,toensurethatchildrenareadequatelysupervised,paragraphs3.31–3.32ofthe EYFSframework(bindingonallearlyyearsprovidersunderRegulation3(2)oftheTEYFS(WR) R)providesastaff-to-childratioof1:3and1:4forchildrenagedunderandovertworespectively (DfE,2021; HMGovernment,2012).TheUKregulationsarerelatabletoHongKongastheCRH
accommodateschildrenagedunderthree(HKSPC,2023).Incomparison,thestaff-to-childratioin HongKongisdisproportionatelyhigh.Toendthenormofroughhandlingandstrengthenthe capacityofcapableguardians,thestaff-to-childratiointheCCSRshouldbelowered.Thus,this papersupportstheHKSPC’sreductionofstaff-to-childratiofrom1:7to1:5andrecommendsthe CCSRbeamendedaccordingly(OrientalDailyNews,2022).
3.StrengtheningthesupervisoryregimeoverCRHs IthasbeenanalysedthroughRATthattheSWD,anothercapableguardian,wasunableto discoveranyinstancesofchildabusedespitehavingconductedinspections.Thereareareasof concernwiththeSWD’ssupervisoryframeworkwhichmayhavecontributedtotheincidents.
UnderSection13(a)and(b)oftheCCSO,theDSWoranyinspectormayenterandinspect anyCCCaswellasanydocumentrelatedtoitsmanagement(HKSARG,2021a).The SPMSPAMdifferentiatesbetweenRegularandSurpriseVisits.WhileRegularVisitsare conductedwithin28-35daysafteranoticeisgiven,nosuchnoticeisgivenforSurpriseVisits. BothtypesofvisitsassesstheCCC’simplementationofSQSandperformanceundertheSFA (SWD,2012).Particularly,SQS16requirestheCRHtotakereasonablestepstoensurethat childrenarenotabused(SWD,2022).
TheSPMSPAMrequirestheassessortoreportallnon-compliancefoundinthe assessment.TheserviceoperatormustthensubmittoSWDarectificationactionplanand rectifythemunderSWD’sscrutiny(SWD,2012).UnderSection9(a)oftheCCSO,theDSW maycancelaCCC’sregistrationifitisrunbyunfitpersonsornotunderthecontinuous supervisionofapersonwithsufficientexperience(HKSARG,2021a).
Therearethreeareasofconcernwiththecurrentsupervisoryregime.Firstly,the frequencyofinspectionsshouldbestipulated.IntheUK,Regulation27(1)oftheInspection Regulationsrequireschildren’shomestobevisitedatleasttwiceperyear(HMGovernment, 2015b).Allsuchvisitsaresurprisevisits(TheOfficeforStandardsinEducation,Children’ s ServicesandSkills,2015).Toensuretimelyandeffectivemonitoring,theinspection frequencyofatleasttwovisitsperyearshouldbestipulatedinSection13oftheCCSO.During suchvisits,theSWDshouldreviewCCTVfootagetoidentifyanyinstancesofnoncompliance.Aschildabuseincidentsmaybeeasilyrevealed,themotivatedoffenderswillbe deterredfrommaltreatingchildren.Secondly,theinspectionregimecouldbeimprovedby imposingastatutorydutyonCRHtoupholditsdutiesofchildprotection.UnliketheUK’ s TCH(E)R,whichsetsoutthequalitystandardsthatchildren’shomesmustmeet,HongKong hasnoequivalent.TheCCSOshouldmirrorthe “qualityandpurposeofcare” and “protection ofchildren” standardsintheUKRegulations6(2)(b)(iii),12(2)(a)(v),and12(2)(a)(vi)tooblige themanagementtoensurethatCCWstreatchildrenwithdignityandrespect,understand theirresponsibilitiesinprotectingchildren,andtakeeffectiveactionwheneverthereisa seriousconcernaboutchildren’swelfare(HMGovernment,2015a).Thesestandardsare consistentwiththeCRHs’ dutiestoprotectvulnerablechildrenfromabuseandprovidethe highestqualityofcare(DfE,2014).Thirdly,theJusticeofthePeaceVisitProgram(which arrangesvisitstocustodialinstitutionsordetainedpersons)shouldbeexpandedtocover CRHs.Inspectionsconductedbyindependentpersonsnotonlyenableimpartialassessments tobemade(DfE,2014),butalsorelievestheSWDofpressure.Theyshouldbeempoweredto conductinvestigationsbymakinginquiriesintostaffcomplaintsandreferringthemtothe SWDforfollow-upaction(AdministrationWingoftheChiefSecretaryforAdministration’ s Office,2020).Thisprovidesanadditionalsafeguardforearlyidentificationofsuspectedcases ofchildabuse.
Criminallawsagainstchildabuse
1.Abolishingthedefenceofreasonablechastisement
TheIRCidentifiedteninstancesofphysicalabuseadministeredbymotivatedoffenders (i.e.,CCWs),includingusingslappingascorporalpunishment.GeneralCommentNo.8ofthe UnitedNationsCommitteeontheRightsoftheChild(UNCRC)definescorporalpunishmentas “anypunishmentinwhichphysicalforceisusedandintendedtocausesomedegreeofpainor discomfort,howeverlight” (UNCRC,2007,para.8).AlthoughRegulation15oftheCCSR prohibitscorporalpunishment,itonlycarriesamaximumpenaltyofoneyear’simprisonment tooffendersandthuslacksadeterrenteffect(HKSARG,2008).InHongKong,thecommonlaw defenceofreasonablechastisement,whichpermitscorporalpunishmentunlessitis “excessive”,remainsvalidincasesofcommonassaultandassaultoccasioningactualbodily harm(TheSupremeCourtofHongKong,1988; BirchallandBurke,2020).
InWales,underSection1(1)oftheC(ADRP)(W)A,thisdefencehasbeenabolished,meaning thatcorporalpunishmentisunjustifiableonanygrounds(WelshGovernment,2022).Infact, thereisnoevidenceassociatingphysicalpunishmentwithpositiveoutcomesinchildren (GershoffandGrogan-Kaylor,2016).Corporalpunishmentiscorrelatedwithchildaggression, antisocialbehaviour,mentalhealthproblems,anddiminishedmoralinternalisation(Smith,2006).
Bypermittingsomeformsofunacceptablephysicalpunishmentsuchasslapping,the reasonablechastisementdefencemayencouragemotivatedoffenders’ (i.e.,CCWs’)rough handlingpractices.Althoughchildrenagedbelowthreemaybehyperactiveorinquisitive,it doesnotmeanthattheuseofcorporalpunishmenttomaintaindesirablebehaviourinthem canbejustified(GoldschmiedandJackson,2004).Atcommonlaw,giventheambiguous conceptof “reasonableness”,itisunclearthatwhatkindofpunishmentisconsidered excessive(Rowland etal.,2017).Suchalegaluncertaintymaycastanimpressiononthe motivatedoffendersthatonlysomeformsofcorporalpunishmentarecriminallyliable.
ItisthereforerecommendedthatthedefencebeabolishedinHongKongthrough legislation.Ifthemotivatedoffendersunderstandthatphysicalassaultonchildrenis unacceptableforwhateverreason,theywillnolongerregardroughhandlingasthenormand theircriminalinclinationscanbecurbed.
2.Mandatoryreportingofsuspectedchildabusecases
Thechildabuseincidentswerenotrevealeduntilreportedbythepublic.Asacapable guardian,themanagementwasawareoftheincidentsbutdidnotintervene.Also,noneofthe CRHstaffreportedanyincidentstothepoliceorthemanagementoutoffearofalienation fromtheircolleagues.WhiletheSWDhaspublishedaProceduralGuidelineforProtecting Childrenwhichestablishesthestepsthatprofessionalsmaytaketoreportsuspectedabuse incidents(SWD,2020),HongKonghasnomandatoryreportingsystemforchildabuse(when thispaperisprepared).TheoccurrenceoftheincidentsindicatesthattheSWDguidelines werenotstrictlyobservedbytheCRH.Theabsenceofamandatoryreportingsystemhas contributedtotheintentionaloversightofthecapableguardiansovertheincidents.
TheLRCConsultationPaperexplainsthatunderamandatoryreportingsystem, professionalswhoworkwithchildrenare “obligedtoreportcasesofsuspectedabuseand neglect” totheauthorities(LRC,2019,para.8.54).AnexamplecanbefoundinSections30and 31oftheCYP(S)A,whichrequireemployeesofchildcareservicestoreportsuspectedcasesof childabuseiftheyreasonablybelievethatachildisatrisk(GovernmentofSouth Australia,2017).
ThispaperrecommendstheimplementationofsuchasysteminHongKong.Firstly,iffailure toreportchildabuseconstitutesacriminaloffence,staffwillnotknowinglycoverupincidentsin fearofcriminalsanctions(Mathews,2015).Motivatedoffenderswillalsobepreventedfrom embarkingupontheircriminalinclinationsdueto theenhancedriskofdetection.Secondly,there couldbeswifterinterventionsbylawenforcement agenciesifreportsonsuspectedcasesofchild abuseweremademuchearlier.Thirdly,thesystemcanstrengthenthepublic’sawarenessofthe
Childabuse inachildren’ s residential home 303
significanceofreportingchildabuse(UKHomeOffice,2015)andfosterachild-centredculture thatabhorschildabuse(AustralianInstituteofFamilyStudies,2020).
However,inHongKong,theProceduralGuidelineforProtectingChildren,whichwas introducedbytheSWDtostrengthenstaff’sawarenessofreportingchildabuse,wassimply disregardedbytheCRHstaff.Furthermore,ascomparedtotheUK,HongKonggenerally lacksawhistleblowingcultureinitschildprotectionsystemthatbringsthesamebenefitsofa mandatoryreportingsystem.Therefore,itisrecommendedthatamandatoryreporting mechanismmirroringtheCYP(S)AshouldbeenactedtodeterCCWsfromconcealing suspectedcasesofchildabuse.Theauthoritiesmaythentakepromptactionafterreceiving suchreports.
3.Anewoffenceoffailuretoprotectachild
Aspreviouslyanalysed,theCRHhasfailedtodischargeitsdutyasacapableguardianto childrenunderitscare,anditssupervisorymechanismfailedatalllevels(includingthe management,theDirectorofHKSPC,andtheExecutiveCommittee).Theabsenceofcriminal liabilityoverfailuretodischargesuchimportantdutiescontributedtotheirwilfulblindness.
Section27(1)oftheOAPOprescribesanoffenceonanyoneagedabovesixteenwho wilfullyassaults,ill-treats,orneglectschildrenunderhis/hercare,carryingamaximum penaltyoftenyearsofimprisonment(HKSARG,2021b).However,whenmultipledefendants arechargedwithsuchanoffence,theymustbeallacquittedifitisunclearwhichofthem inflictedharmonthevictim(LRC,2021).
The LRC(2021) hasrecommendedenactinganewoffenceof “ failuretoprotectachildor vulnerableperson ” basedonSection14oftheCLCA.Theoffencecriminalisesnegligencein aperson:1)whoowesa “ dutyofcare ” tothevictim;2)whoknew,orhadreasonable groundstobelieve,thattherewasariskofseri ousharmtothevictim;and3)whofailedto takereasonablestepstoprotectthevictimfromsuchharm.Suchapersonwhofallssofar shortofthestandardofcarereasonablyexpectedofhimorheris,inthecircumstances,so seriouslynegligentthatacriminalpenaltyiswarranted( GovernmentofSouth Australia,1935).
ThispapersupportsimplementingtheLRC’sproposedoffenceasitalsocriminalisesthose whopermittedchildabusetooccurwithouttakingreasonablestepstopreventtheabuse(Henry etal.,2020).ThisremediesSection27(1)’sweakness.Itwouldalsofacilitateearlyidentificationof suspectedchildabusecasesbyimposingadutyoncapableguardianstointervene(LRC,2021). Finally,theproposedoffenceonlyreinforcesthebasicdutiesthatchildcareprofessionalsbearin safeguardingchildren’sbestinterestsanddoesnotimposeanyadditionalobligations. Institutionsthathavecompliedwiththeirrequiredstandardswillbeconsideredtohavetaken reasonablestepstoprotectchildren(LRC,2021).
Conclusion
UsingRATastheframework,itisanalysedthatthelackofCPDonchildprotectionand disproportionatestaff-to-childratiocontributedtoanormofroughhandlingintheCRH, whichencouragedCCWs(asmotivatedoffenders)tohandlechildrenundertheircare(as suitabletargets)roughly.Thereisalsomaladministrationofthemanagementasacapable guardianduetomanpowerissues.Thelackofsupervisionfromthemanagementaggravated CCWs’ assimilationofthisnorm,leadingtotheincidents.Byanalysingtheincidentsthrough RATandtheirrelationshipwiththeinsufficienciesintheexistinglegalregime,thispaper recommendsurgentlegalreformtoprotectvulnerablechildrenandregaintheshattered publicconfidenceinthechildcareindustry.
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Abouttheauthors
Wing-hongChuiisProfessorandHeadofDepartmentofAppliedSocialSciencesatTheHongKong PolytechnicUniversity.Hisresearchinterestsincludesocialwork,criminology,criminaljustice,and childrenandyouthstudies.Wing-hongChuiisthecorrespondingauthorandcanbecontactedat: winghong.chui@polyu.edu.hk
HenryKaowaspart-timeResearchAssistantintheDepartmentofSocialandBehaviouralSciences atCityUniversityofHongKong.HeobtainedhisBachelorofLawsandPostgraduateCertificateinLaws fromCityUniversityofHongKongandTheUniversityofHongKongrespectively.
AaronH.L.Wongwaspart-timeResearchAssistantintheDepartmentofSocialandBehavioural SciencesatCityUniversityofHongKong.HeobtainedhisBachelorofLawsfromCityUniversityof HongKong,LLMinCriminalLawandCriminalJusticefromTheUniversityofEdinburgh,andMPhilin CriminologyfromUniversityofCambridge.
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