Edmonton (Alta. ) - 1992 - Children and youth are today (1992 04)

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Children and You h a e Today City-of-Edmonton Ma

CHILDREN •' . AND YOUTh

*based on a piliem by Gabriela Mistral

Mayor's Task Force on Safer Cities Children and Youth Committee 1117.3a .E3 E368 1992

April 1992


Planning and

Development

LIBRARY

The City of Edmonton

CHILDREN AND YOUTH ARE TODAY

REPORT OF THE CHILDREN AND YOUTH COMMITTEE

Mayor's Task Force On Safer Cities April, 1992


We are guilty of many errors and many faults but our worst crime is abandoning the children, neglecting the fountain of life. Many of the things we need can wait. The children cannot. Right now is the time bones are being formed, blood is being made, and senses are being developed. To them we cannot answer "Tomorrow." Their name is "Today." — Gabriela Mistral Nobel Prize winning poet from Chile


Acknowledgements Committee members acknowledge and greatly appreciate the many citizens who provided much advice, assistance, input and support for the Committee's efforts. A special thanks is extended to the youth who shared their personal experiences, feelings and insights with US.

Children and Youth Committee Malcolm Archibald Denis Bell Martin Garber-Conrad Louis Lamothe Carol Ann Probert Ross Tyson Harvey Voogd Committee Support Steve Friedenthal Monica Wichman


I. INTRODIITON Crime prevention through social development is a strategy to address societal situations found to be associated with crime. Backlogs in the courts and overcrowding in jails are witness that the traditional approach to addressing crime - "cops, courts and corrections" - is not working. In contrast to the objective of the traditional approach, that is, to limit opportunity to commit further crime, the objective of the social development approach is to alleviate the social conditions that predispose individuals to criminal behaviour. This requires action at the service delivery level as well as at the policy level. Crime prevention needs to begin early; we will all benefit if the focus is placed on our children and youth. If the pattern can be changed before police are involved and criminal records begin, the benefits to the young person alone will make these efforts worthwhile. The benefits to our community will be long-term. Attitudes must be changed. There is much talk about supporting families and loving children, but actions do not match the words. The Committee heard from young people who have been treated as a nuisance, who do not feel welcome in our community. As long as children with problems are treated as burdens, we will not reduce crime. Even services for youth fall into the trap of being problem-centred and problem-driven, giving the impression that the problem, not the child, is the priority. Each institution meets the needs of only a part of the child, but there is no one caring for the whole young person. Programs must fit the child, the child cannot be forced to fit into compartmentalized services. Successful strategies to support good parenting, especially for children with other needs, are required. Greater institutional flexibility and diversity are essential to meet the needs of each child. Successful strategies must be developed to ensure all children have appropriate educational options to function in a modern society.

II. ASSUMPTIONS AND VISION The Committee believes Edmonton's young people can contribute substantially to shaping Edmonton's priorities and programs for children and youth. However, in stating this, the Committee recognizes its own shortcomings. Though youth were consulted, no young people were members of the Committee. The entire community, not only parents and schools, shares responsibility for Edmonton's children and youth. Community means shared accountability and responsibility for children, parents and other citizens.


Edmonton needs to reach-out to children "where they are at." We have a responsibility to span and close the gap that at-risk youth typically create as they place themselves at the fringes of society. All approaches need to be community-based. The Committee believes all children and youth have a right to: be safe from abuse and exploitation; be secure from poverty; belong to families and communities; have a sense of ownership and place; be valued as individuals; present their opinions and be taken seriously; participate in decisions that affect them; be responsible for their own behaviour; be healthy.

III. COMMITTEE PROCESS Committee members brought to the task their expertise in education, social services and government, as well as hands-on experience in being parents and working with at-risk children and youth. The Committee studied reports, research papers and other written materials. Meetings were held with small groups of young people. The Committee spoke to a wide variety of experts: teachers and educators, social workers, police, judges, municipal and Provincial government officials, and other individuals who work with children and youth. In addition to the smaller meetings, the Committee held a public forum to enable participation of all interested parties.

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IV. SOME COMIV .--rEE FINDINGS -

Appoximately 100 countries have ratified the United Nations Convention on the Rights of the Child.

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The peak age for criminal offenses is the 15 to 18 year age group. Males are more likely to be involved in crimes than females, although the number of females charged with offenses is increasing. In 1990, 77 percent of young offenders were male. 66 percent of property crime in Edmonton is committed by young offenders. Of these crimes, a large number are committed by about 3 percent of the youth who are involved in criminal acts. Aboriginal youth are over-represented in jails and in juvenile court. While the aboriginal population around Edmonton is about 5 percent of the total population, the number of aboriginal youth admitted to the Edmonton Young Offenders Centre in 1989-90 was 45 percent of admissions. Suicide is the second leading cause of death among Canadian adolescents. Family support cases include families where a child or children are in need of protective services, but the family problems are not so severe that the children need to be removed from the home. There are approximately a thousand such families in Edmonton. In the Edmonton Region, in 1989-90, there were 9,344 investigations by Alberta Family and Social Services; 1,094 involved abuse, 787 neglect and 775 parentteen conflicts.

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Only two years after leaving school, drop-outs are more than four times as likely as are school graduates to have been in trouble with the law.

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30 percent of Edmonton Public Schools youth drop out of high school. Drop-outs can expect to have more difficulty finding skilled work, to be lower paid, to have longer and more frequent periods of unemployment, and to be more likely to have to rely on unemployment insurance, social assistance and food banks.

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Considering lost tax revenue and higher social expenses, young people who leave school early will cost Canadian taxpayers about $33 billion over the next 20 years.

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Crossroads Outreach reported that from June to September 1991, they dealt with 280 individual juvenile prostitutes in Edmonton. Of juvenile street prostitutes, girls outnumber boys by 3 or 4 to 1. Thirty percent are of aboriginal ancestry. Eighty percent are veterans of the child welfare system. A study of 31 prairie provinces prostitutes found that 22 had "turned out" before their 17th birthday. A Calgary Police study found that 44 percent of prostitutes had begun working as prostitutes before reaching the age of 18. In 1990, Edmonton Police Service charged 55 juvenile prostitutes. The official unemployment rate for teenagers (15 to 19 year olds) in Edmonton has usually been between 10 and 20 percent in recent years and typically is 50 percent higher than the overall unemployment rate. In Edmonton, it is estimated that one in five children (approximately 35,000) under age 16 live in poverty (Statistics Canada, 1988). The Edmonton Food Bank reported that in 1990 they provided almost 34,000 services to children under 12. The Senate Report on Child Poverty, released in March 1991, stated that Canadian taxpayers would save almost $10 billion over the next two decades if more help was given to low-income children who are likely to drop out of school. Today at Ross Sheppard High School, about 30 percent of the 1,950 students are non-white. At Harry Ainlay High School, non-whites may be as many as 40 percent. Unemployment is a major problem for 15 to 19 year olds at risk. As defined by employment counsellors who deal with these youth: 75 percent have less than Grade 9; 75 percent are on social assistance; 50 percent are aboriginal; most grew up in unstable living environments; and many have been incarcerated. Aboriginal children are significantly over-represented in the child welfare system. For example, 50 percent of the children and youth in government foster care are of Aboriginal heritage, though Aboriginal people make up only about 5 percent of Alberta's population. It is estimated that for every dollar invested in Head Start programs, seven dollars are saved in other, later intervention. Head Start programs are designed to give 3 and 4 year olds an opportunity to begin educational activities early and thereby prevent students from dropping out of school, helping to break the cycle of poverty. 4


V. RECOMMENDATIONS The following recommendations reflect key concerns from the community and of the Committee's own members. It is in this context that the recommendations which follow represent the first steps required to address some of the pressing issues regarding children and youth in Edmonton. Some recommendations of the Young Adult Unemployment and the Children and Youth Committees overlap, because both committees share similar social development understandings and concerns for younger people. The Committee's recommendations are presented in the following areas of concern.

A. B. C. D. E. F. G. H. I. J. K. L. M. N.

RIGHTS AND RESPONSIBILITIES OF CHILDREN YOUNG OFFENDERS MENTAL HEALTH CHILD WELFARE 16 AND 17 YEAR OLDS EDUCATION JUVENILE PROSTITUTION EMPLOYMENT RECREATION AND LEISURE POVERTY YOUTH OF ABORIGINAL HERITAGE CROSS-CULTURAL ISSUES SUBSTANCE ABUSE INTEGRATION OF SERVICES

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A. RIGHTS AND RESPONSIBILITIES OF CHILDREN A community which truly values the views of its children and youth must include and offer them opportunities for participating in decisions which affect them and the City as a whole. The Strathcona County Youth Council is a useful model to emulate. It includes junior and senior high school students, youth who have dropped out or left school early and college and university students. A Children and Youth Day, built upon the existing Family Day, could become a focal point annually for Edmontonians to focus on our children and youth and to highlight their issues and concerns. Timing, hosting and coordination of events surrounding Family and Children day could involve the Youth Council. The United Nations World Summit for Children was held in September 1990 and cochaired by the Prime Minister of Canada. A first step in the plan to improve conditions for children throughout the world is ratification of the United Nations Convention on Rights of the Child. The Convention delineates desirable conditions for the world's children. These include protection from detrimental situations (for example, sexual exploitation, physical harm, discrimination), provision of services intended to enable children to develop their potential and participation in the legal and administrative proceedings affecting children's lives. An important basic principle in the Convention is that children have "first call" on the resources of signatory countries. Approximately 100 countries have now ratified the Convention.

Recommendations 1.

A Youth Council, which reports directly to City Council, be created with the mandate to advise the City of Edmonton and the Edmonton school boards on a proactive basis regarding issues of concern to Edmonton's children and youth. Implementation a) Edmonton City Council, in cooperation with the Edmonton school boards, implement the Youth Council immediately. b) Necessary support be provided to the Youth Council by Edmonton Community and Family Services.

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2.

The City of Edmonton recognize and celebrate its children and youth by renaming he annual Family Day celebration, Family and Children Day. Implementation a) Edmonton City Council implement this in 1993. b) The Mayor proclaim Family and Children Week, the week of the current Family Day.

3.

City Council symbolically ratify the United Nation's Convention on the Rights of the Child. Implementation The Convention be adopted by Edmonton City Council before the end of 1992.

"I think that adults don't understand us."

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B. YOUNG OFFENDERS The Committee believes incarceration should be a very last resort and more alternatives must be developed. The present sentencing alternatives available to Youth Court judges are extremely limited. As a result, judges often incarcerate youth because it is the only option available. Youth expressed they feel branded for life because of "one mistake." Loss of self-esteem and the basic ability to feel good about oneself are results of acquiring a criminal record. Young people have also expressed that a person who already has a record is more likely to commit more crimes; they can never start over again anyway. Youth who are incarcerated expressed strong concern about the lack of support when they came out of jail. The transition from jail to the community is always very difficult. Without proper pre- and post-release support, it is almost impossible. It is the Committee's opinion there is an overuse of pre-trial custody. Many of the youth in the Edmonton Young Offender Centre are awaiting trial. The financial burden of the overuse of pre-trial custody is heavy and the costs to the youth are also high. Incarceration can mean a disruption in schooling and potential loss of a foster home. In this respect, we commend and support the Department of the Solicitor General on its new pre-trial custody diversion program for young offenders. The Alternative Measures Program (AMP) is an excellent program which is delivered by Edmonton Community and Family Services. Unfortunately, its clients are restricted to a narrow range and number of offenses. The Committee believes sentencing programs which are community-based and involve victims deserve strong support. Such programs, like AMP, should deal with all young offenders unless there is a clear risk to safety and security. Section 69 of the Young Offenders Act provides for Youth Justice Committees "...to assist.. .in any aspect of the administration of this Act, or in any programs or services for young offenders...." In Alberta, Youth Justice Committees currently exist only on a few reserves where they administer community sentences. Participation in a Youth Justice Committee is a way for concerned citizens to make their community better and safer. The Government of Alberta encourages volunteer involvement in all aspects of social programs offered by the Province. This is a meaningful way for the public to participate in matters of paramount importance to the community.

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Recommendations 1.

The Attorney General appoint Crown Counsel to specialize in youth court and obtain special expertise in the needs and requirements of young people. Implementation Edmonton Police Commission request this of the Attorney General.

2.

The Attorney General immediately review the overuse of pre-trial custody. Implementation Edmonton City Council request this review.

3.

The criteria of the Alternative Measures Program be expanded beyond first offenses, as in other provinces. Implementation a) Edmonton City Council request this of the Attorney General. b) Resources for this expansion be provided by the Solicitor General under contract to the City of Edmonton.

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4.

The Solicitor General and Attorney General pilot Youth Justice Committees in Edmonton. Implementation Edmonton City Council request this of the Solicitor General and Attorney General.

5.

The Solicitor General's Department fund Outreach Workers to provide preand-post release support to youth coming out of jail. Implementation Edmonton Police Commission request this of the Solicitor General.

"I think that there should be outreach workers that work with the kids inside and then when they leave the same one work with them outside. The reason for this is because the kids would get used to them inside and then the worker would encourage the youth to work with them outside. Things like job searches, owning his own apartment, budget, etc." Stacey

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C. MENTAL HEALTH The present state of children's mental health services in the City of Edmonton is inadequate, confusing and working poorly. Mental health services are the responsibility of the Provincial government which must resolve the problem. Most of the children's mental health services are delivered to and funded by the child welfare system of Alberta Family and Social Services for children in need of child protection. The child welfare system is involved in mental health services through default as no other area of government developed a children's mental health system for children in need of protective services. Children and adolescents not in need of protective services, that is, without Child Welfare "status," cannot readily access services. Although Alberta Health clearly has responsibility for community mental health services for Albertans, its funding and treatment services are extremely limited. This results in a small percentage of very needy children, those in the child welfare system, consuming the greatest share of children's community mental health resources. In contrast, a much larger number of children requiring mental health services are not adequately served. Many never receive the service, sometimes minimal, that they require. A community-based children's mental health system is needed which would be neighbourhood-based and include strong support for early intervention, especially preventive programs for young children. It is inefficient for two government departments to provide the same services when one would suffice. It is the view of the Committee that Alberta Health has the legislated mandate for community mental health services and the current fragmentation should be eliminated.

Recommendations 1.

The Provincial government integrate responsibility for and funding of children's mental health services in Alberta Health, including transfer of funds from Alberta Family and Social Services. Implementation Edmonton City Council request this of the Premier.

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2.

Alberta Mental Health Services (Alberta Health), in consultation with Alberta Family and Social Services, Solicitor General and Alberta Education, plan and implement a children's mental health system accessible to all in need, with a priority for those in the child welfare system. Implementation City Council write the Premier of Alberta to urge these changes no later than April, 1993.

3.

In view of the grave concerns expressed, the Edmonton school boards and Alberta Education expand the school-based suicide prevention programs to elementary and junior high schools. Implementation City Council write to the Edmonton school boards, by June 30, 1992, expressing concern about suicide among young people and recommending the expansion of suicide prevention programs.

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D. CHILD WELFARE Child protection services in the City of Edmonton are provided by the Province through Alberta Family and Social Services. The City of Edmonton provides preventive social services to children and families through its Community and Family Services department. There is a service gap between these two systems as municipal preventive services do not fully extend to the crisis point mandating child welfare protection services under the Child Welfare Act. The needs of many children and families fall between the "cracks"; their problems are beyond the scope of the preventive services, but are not sufficiently severe to invoke child protection initiatives. The two service systems, both with limited resources, have not been able to bridge the service gap. Furthermore, it is often difficult to determine whether a child and family can best benefit from preventive services, crisis intervention or some other mid-range response. Formally extending the boundary of one system to meet the other would address this problem. This could be effected by the City of Edmonton assuming responsibility for the provision of services to all Edmonton family support cases under the Child Welfare Act. All social services to children in their own homes would then be provided by Edmonton Community and Family Services. Alberta Family and Social Services would become involved if a child had to be taken from the home to receive substitute care. Existing resources would be transferred, under contract, from the Province to the City of Edmonton and could then be integrated to establish a full range of community-based social services to families and children in their own homes. Many experts consider this essential for the provision of successful family support programs. Greater involvement of the community in child welfare issues could also be effected. The transfer of responsibility will eliminate the gap between the two service systems, reduce the number of Edmonton children being removed from their homes, help integrate all local services for children and form the basis for a creative government/community partnership for services to children, including those in need of protection.

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RecommeL.Ai.:ons 1.

The City of Edmonton and Alberta Family and Social Services negotiate a contract for delivery of services and provision of resources for family support services, under the Child Welfare Act (including cases under voluntary agreements) wit-in City of Edmonton boundaries. Implementation a) Edmonton City Council initiate these discussions with the Minister of Family and Social Services. b) The City of Edmonton and Alberta Family and Social Services establish a joint working committee to negotiate and plan this program change. c) The transfer to be effective April 1, 1993.

2.

A forms' mechanism be developed to coordinate services to abused am] neglected &11,1.ren. Implementation Edmonton City Council request the Minister of Family and Social Services to direct his department to implement this in cooperation with Edmonton Board of Health, Edmonton school systems and Alberta Mental Health Services.

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LE.

16 AL D 17 l'ET,R 0 )rj

Expressions of major concerns required the Committee to hold a special session focusing on the needs of youth living independently from their families. The Committee adds its voice to those already expressing concern for the inadequacy of services to the group of youths living independently of family in Edmonton. Many of these youth receive services from either the Supports for Independence program or Child Welfare system of Alberta Family and Social Services, but fall into cracks between the two programs. The gaps often leave them homeless and unsupported. As a result of concerns, Alberta Family and Social Services recently initiated a comprehensive review of services to this age group. All of the social problems that we reviewed (for example, substance abuse, unemployment, juvenile prostitution) are found among and probably over-represented among 16 and 17 year old youth receiving services from the Child Welfare and Social Allowance programs.

Recommendations City Came dizact Comrciit; ••;_%nd Fer_ly si:vilces to prepare an analysis of 1E']e: p.suaritIve neacis of youthMngJridependently of family for subm!ssEon to tha Provnicial review of services ',a) this age group. Implementation This be provided to Alberta Family and Social Services by May 31, 1992.

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2.

In view of the multiple needs of these youth, and the fragmentation of services to meet those needs, it is recommended that the Edmonton Region of Alberta Family and Social Services take the lead in establishing a singleentry, multi-service centre to meet the needs of these youth in Edmonton. Implementation The Mayor, with the support of City Council, recommend the establishment of such a centre to the Minister of Alberta Family and Social Services, including an offer of resources from Community and Family Services to plan and implement the centre.

"...I can't get social assistance; I'm told to just go home. I would if I had a home to go to." "Social Services tells me they cannot give me support because of my age and because I'm in school. But if I drop out of school, then they will be able to give me support." "You have a poor home life...you don't want to stay at home ...you can't stay at home.. .you have no one to talk to... getting help is impossible because of your age. .agencies really don't help. You need... so you steal."

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F. EDUCATION Community representatives and youth raised a great many issues regarding the school systems. This was anticipated in that school touches the lives of all children and youth in Edmonton. Some of the key issues raised were readiness problems experienced by children entering kindergarten, relevance of school curricula at all levels, coordination of schools with other services, attendance problems, parental involvement in education and school drop-outs. It is beyond the scope of this report to address all of these issues raised regarding school. Much work and many studies have been undertaken and much written about school. Concerted action is required now. School drop-outs offer a special problem and the concerns for these youth need to be placed in the highest priority.

Recommendations 1.

Edmonton school boards adopt a specific goal and means to significantly reduce the drop-out rate in the 1992/93 school year. Implementation a) Edmonton City Council request the Edmonton school boards to implement this immediately. b) Edmonton City Council request Alberta Education to re-examine its studentbased funding (the September 30th enrolment count) so that schools are encouraged to retain at-risk students.

2.

Edmonton school boards and Alberta Education encourage parents to be active partners in all aspects of their children's education. This includes making sure that parents are well-informed about educational standards and results and have opportunities to be more actively involved in schools and in decisions about the education of their children. Implementation Edmonton school boards and administrations make this an expectation on all schools.

Planning and Development

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The City of Edmonton 17


3.

Edmonton school boards and Alberta Education create opportunities for students to experierce success in the!' neigrwourhood schools through use of relevant curricula. Implementation Edmonton City Council make this request of Alberta Education and the Edmonton school boards.

4.

!dantify at-risk stueents as early as possible and intervene with strategies designed to meet the specific needs cf •::hese students. Implementation Edmonton City Council request the Edmonton school boards, Edmonton Community and Family Services and the Edmonton Board of Health to work together in close partnership in this regard to improve the availability of coordinated school-based family and community services. This means students have the support they need to succeed in school.

5.

School activities be made available to all students without charge. Implementation Edmonton City Council request the school boards to abolish school fees.

6.

The Edmonton school boards find alternatives to out-of-school suspensions. Implementation Edmonton City Council make this request of both school boards.

"If you can't afford to dress like other kids you get labelled as "the welfare kid" as early as grade 5."

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G. JUVENILE PROSTITU71 Street prostitution is a serious problem in Edmonton involving several hundred youth of both sexes. Almost all juvenile prostitutes are runaways or have been victims of child abuse; physical, emotional and/or sexual. Juvenile prostitutes can be charged under the Criminal Code. Clients and pimps, like juvenile prostitutes, can be charged under the Criminal Code, but the penalties for these exploiters of youth are difficult to enforce. Although recognized as a serious problem, there are few services and programs to help young prostitutes. This problem cannot be eradicated by policing alone; a concerted effort is required by police, child welfare and community service agencies. Juvenile prostitution can be minimized by ensuring that alternate means of existence (for example, affordable housing, jobs) are available to teens and support services are in place to aid them in leaving street life. Young prostitutes must be taken seriously when expressing views on the factors forcing them into prostitution and their inability to effectively use traditional child welfare, educational and social services. Services for juvenile prostitutes must be designed with a multi-disciplinary approach and be "user friendly." Further, services for these young "street people" must also invite them to participate in defining their own needs and in planning appropriate responses.

Recommendations 1.

More resources be made available to finance services which work with juvenile prostitutes and assist them with the process of leaving the street. Implementation Edmonton City Council make this request to the Minister of Alberta Family and Social Services.

2.

Clients of juvenile prostitutes be charged with sexual abuse or the appropriate category of sexual assault. Implementation Edmonton Police Commission direct the Edmonton Police Service to implement this.

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3.

Greater responsibility be taken by Alberta Family and Social Services in providing services to youth with Child Welfare status involved in prostitution. Implementation Edmonton City Council request the Minister of Family and Social Services to ensure this.

4.

Alberta Family and Social Services review its mandate relative to juvenile prostitution and provide clear policy direction with respect to child protection and juvenile prostitution. Implementation Edmonton City Council request this review of the Minister of Family and Social Services.

5.

Edmonton Community and Family Services take the initiative and convene the stakeholder organizations involved in juvenile prostitution (including police, government departments and community agencies) to develop and implement a coordinated strategy to address the issue. Implementation Edmonton Community and Family Services implement this and provide progress reports to Edmonton City Council.

"It's hard to be on the streets until 4:00 a.m. trying to earn money to survive and then concentrate in school the next day."

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H. EV.OYMENT Unemployment is a major problem for youth at risk, especially among the 15 to 19 year age group. The group experiencing difficulties are characterized as having less than grade 9 schooling (75 percent), are on social assistance (75 percent) and are of aboriginal background (50 percent); most grew up in unstable environments and many have been incarcerated. Jurisdictions which successfully deal with youth employment have combined formal schooling with work experience. In contrast, high rates of youth unemployment are associated with schooling which is not practically oriented. Many youth who do not learn well in school can excel in learning on-the-job skills tied to classroom instruction.

Recommendntions 1.

The Edmonton Chamber of Commerce investigate and implement an initiative to help open employment opportunities for youth of Aboriginal heritage. Implementation Edmonton City Council make this request to the Edmonton Chamber of Commerce.

2.

Alberta Education be requested to examine the relevance of curricula to prepare students for technical school, apprenticeship, industrial training and the world of work in general. Implementation Edmonton City Council request Alberta Education to work with the Edmonton school boards, Edmonton Chamber of Commerce and the Edmonton and District Labour Council to form a partnership to effect this.

3.

The Provincial government expand the apprenticeship model into new occupations and industries. Implementation Edmonton City Council request this of the Ministers of Advanced Education, Career Development and Employment and Labour.

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4.

The Provincial government develop "bridging" programs for youth at-risk who experience difficulty accessing the apprenticeship system. Implementation Edmonton City Council request this of the Ministers of Advanced Education, Career Development and Employment and Labour.

5.

The Federal government be encouraged to design employment integration programs targeted to at-risk youth and that these be of appropriate depth and duration. Implementation Edmonton City Council request this of Canada Employment and Immigration Commission.

6.

The City of Edmonton take a leadership role in implementing work-training programs for young people in cooperation with the relevant civic unions. Implementation Edmonton City Council direct the Administration to implement this recommendation.

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I. RECREAT:N AND LEISURE Young people indicated a lack of affordable recreational programs, especially organized team activities, for 16-18 year olds. Athletics is important in reducing tensions and other problems. The lack of opportunities for youth to build self-esteem through such an appropriate means as sports, because of lack of money, is inexcusable. The Provincial government's elimination of the Priority Employment Program (PEP) has had a serious effect on the operations of Community League ice rinks all around the city. Many of these operations depended on PEP to subsidize salary costs of staff to clean and maintain the rinks. The Committee believes free recreation programming needs to be inventoried and the information be made available to our city's children and youth. Recreational facilities must be open later hours, such as to 11 p.m., and when schools are not in session, including weekends and all summer. The city needs healthy safe places for children and youth to "hang-out."

Recommandations 1.

The City of Edmorylan develop a responsive approach to children and youth at risk with its recreation facilities and programs and in regard to hours of operation, entrance and program fees and types of programming. Implementation Edmonton City Council direct Parks and Recreation to run one year pilot programs in six high-need neighbourhoods that develop relevant, accessible, no-fee programming. Such programs could be free swimming for elementary/junior high age children and youth or no fee late night basketball (10 p.m. - 1 a.m.) for teenagers.

"There's nothing to do if you don't have money, so you get into trouble." "I can't afford $400 to join a club." "Why are school gyms closed to youth after school? Why are city pools not accessible to youth?"

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J. POVERTY In Edmonton, it is estimated that one in five children (approximately 35,000) under age 16 live in families with incomes below the Statistics Canada Low Income Cut-offs, that is, in poverty. Families on social assistance and those working at jobs paying minimum wage have incomes significantly below the poverty line. The Edmonton Food Bank reported that in 1990 they provided food for almost 34,000 children under the age of 12. The impacts of poverty are great and all the more disheartening when it affects our children who have no control of their circumstances. Low-income families have higher mortality rates than higher income families. School performance for the very poor is lower than for those with higher incomes. Conduct disorders are about twice as prevalent among economically disadvantaged students and antisocial behaviour, including criminal activity, may be associated with difficulties encountered in early childhood. Also, the incidence of health problems, physical and mental, is higher among those who are poor. The Senate Report on Child Poverty, released in March 1991, stated that Canadian taxpayers would save almost $10 billion over the next two decades if more help was given to low-income children who are likely to drop out of school.

Recommendations 1.

A guaranteed annual income be instituted as a concrete and efficient way of alleviating child poverty. Implementation Edmonton City Council request that the Prime Minister of Canada and the Premier of Alberta begin serious discussions regarding this.

2.

Over the next 5 years social allowance rates be increased to at least meet the poverty line. Implementation Edmonton City Council make this request to the Premier of Alberta and the Minister of Family and Social Services.

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3.

Provincial social assistance policies be adjusted so that youth, especially 16 and 17 year olds, have access to full adult benefits and rates to support themselves. Implementation a) Edmonton City Council request this of the Minister of Family and Social Services to be effective by January 1, 1993. b) Edmonton City Council take the initiative and advocate for this in cooperation with community groups.

4.

The Alberta minimum wage for persons over 18 years be raised so that within 5 years it will yield an annual income at least equal to the poverty line for a single adult. Thereafter, the minimum wage should be indexed to the cost of living. Implementation Edmonton City Council advocate for this with the Minister of Labour, the Premier and all Edmonton-area MLAs.

5.

PublicV funded school lunch programs be instituted in all high-need neighaourhoods, providing at least one-third of the daily nutritional requirements. Implementation a) Edmonton City Council join with the Child Poverty Action Group and other community groups in advocating for this with other levels of government and the Edmonton school boards to begin pilot projects by January 1993. b) Edmonton City Council commit to fund one-fourth of the cost of the pilot projects, with the expectation the Edmonton school boards will fund one-fourth and the responsible departments of the Provincial government of Alberta committing to pay one-half of the cost. c) Edmonton City Council request the Edmonton school boards to assess the need for a lunch/snack program for junior and senior high school students.

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6.

Head Start or other early intervention programs be made available to preschool children in high needs neighbourhoods. Implementation Edmonton City Council direct the Administration to continue discussions with community groups, Edmonton school boards and their counterparts in Calgary to advocate for this with Provincial Ministries of Family and Social Services, Health and Education.

"When you are hungry, you can't concentrate on school."

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K. YOUTH C7 .4EORIGINAL HERITAGE Significant changes are occurring for Aboriginal people in Canada. Constitutional discussions have revealed increasing recognition for Aboriginal people's right to control their own destiny. At the forefront is their concern about their children and the impact of decades of government assumption of responsibility for the care of their children. In Alberta, as in many other provinces, Aboriginal children are significantly over-represented in the child welfare system. For example, 50 percent of the children and youth in government foster care are of Aboriginal heritage, whereas the overall percentage of Aboriginal people in the Province is about 5 percent. The high percentage of Aboriginal children in the child welfare system is indicative of the equally high incidence of Aboriginal children and families affected by the social problems reviewed in this report. Aboriginal people's response in combatting these problems is to move as quickly as possible to gain control over their own child and family services so that the problems can be resolved in their own context. This is seen as important to heal their communities. Every effort must be made by the non-Aboriginal community to support Aboriginal people in achieving their own destiny. The leadership and community spirit is emerging in Aboriginal communities to achieve this objective. Support to the Aboriginal community must be based on recognition of the inherent dignity of each Aboriginal person and respect for the Aboriginal community's right and ability to control its own affairs.

Recommendations 1.

That Edmonton City Council request the Edmonton Aboriginal Urban Affairs Representative Committee to develop specific recommendations for the Aboriginal community in areas reviewed in this report. Implementation That Edmonton City Council provide appropriate assistance to the Edmonton Aboriginal Urban Affairs Representative Committee to implement recommendations.

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2.

That the Youth Council proposed in recommendation A.1, above, include sufficient numbers of Aboriginal youth so that their concerns can t e identified and addressed. Implementation That Edmonton City Council request the Edmonton Aboriginal Urban Affairs Representative Committee to identify appropriate Aboriginal youth to be members of the Youth Council.

3.

Edmonton Community and Family Services, in collaboration with Aboriginal service agencies, address the low participation rate of Aboriginal youth in the Alternative Measures Program. Implementation That this be effected immediately.

4.

Aboriginal service agencies in Edmonton be encouraged to explore a clearinghouse or single service entry for aboriginal children and youth. Implementation Edmonton City Council request the Edmonton Aboriginal Urban Affairs Representative Affairs Committee to determine the feasibility of this and facilitate its implementation.

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L. CROSS-CULTURAL ISSUES Increasing numbers and proportion of immigrants to Canada, and Edmonton in particular, are coming from non-traditional source countries. Many of the youth who are coming to Edmonton require training in English before they can actively participate in schooling and employment. Children of immigrants and youth who have immigrated themselves have special needs and face problems relating to the cultural values of the older generation and the new culture in which they find themselves. This is the problem of living in two cultures in which the values clash, but each child needs to resolve them for his or her self. They must also wrestle with the problem of discrimination and the stigma of being different from children and youth of the general society.

Recommendations 1.

Human service professionals, including teachers, officers of the courts, social workers and police receive basic and ongoing training in crosscultural perspectives and sensitivity. Implementation a) Edmonton City Council request that Edmonton educational institutions, including the University of Alberta and Grant MacEwan Community College establish programs to be included in professional training. b) Edmonton City Council request the Attorney General and Solicitor General to emphasize cross-cultural training and sensitivity for their staff. c) Edmonton Police Commission direct the Edmonton Police Service to provide ongoing training in cross-cultural perspectives and sensitivity to all staff, including management and officers.

2.

The City of Edmonton and Edmonton school boards develop appropriate mechanisms so that their staffing more closely reflects the cultural diversity of the community they serve. Implementation a) Edmonton City Council direct the City's Personnel Department to continue to develop and implement a plan so that the City's present hiring practices reflect this. b) Edmonton City Council request the Edmonton school boards to implement this.

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3.

The City of Edmonton participate in and support efforts to develop a centralized interpreter service in Edmonton. Implementation Edmonton City Council direct all City departments to implement this recommendation.

4.

English as a Second Language (ESL) be a priority for both Edmonton school boards. Implementation a) Edmonton City Council request the Edmonton school boards to ensure all schools have the necessary funding, particularly at the Junior High School level, to meet the English Language training needs of non-English speaking children. b) Edmonton City Council urgently request the Federal government, through the Minister of Employment and Immigration Canada, to provide adequate funding for English as a Second Language needs.

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M. SUBSTANCE ABUSE The number of teens admitted to Alberta Alcohol and Drug Abuse Commission (AADAC) treatment programs for drug problems has almost quadrupled over the past ten years. Substance abuse, such as glue sniffing, is not uncommon among pre-teens in Edmonton's inner city. Experimentation with drugs is common among young people. Children and youth harmfully involved with drugs typically have long histories of problems. Substance abuse is symptomatic behaviour indicative of underlying problems, often stemming from internal family dynamics. Youth who abuse drugs often come from families which do not provide positive role models, or are often part of groups which encourage their negative behaviour. They are typically failing or not coping with school. There is a shortage of counselling and treatment services for them, especially in their own communities. Substance abuse is one area where more resources are devoted to prevention than to treatment. Programs have been developed to raise children's self-esteem and reinforce positive behaviour. However, programs have not always been available where and when needed. As well, coordination is lacking among service agencies concerned with substance abuse.

Recommendations 1.

The City of Edmonton initiate a participatory, community-based campaign against substance abuse to be funded by the Alberta Family Life and Substance Abuse Foundation. Implementation a) The City of Edmonton make application to the Alberta Family Life and Substance Abuse Foundation to fund this campaign. b) The campaign be linked with the Healthy Edmonton 2000 project being coordinated by the Edmonton Board of Health.

2.

Prevention of substance abuse should be strongly supported through peer group activities such as MADD campaigns, Safe Grads and through "kids' conferences". Implementation Edmonton City Council request this of AADAC and the Alberta Family Life and Substance Abuse Foundation. 31


3.

Edmonton service clubs be requested to sponsor proven programs which build self-esteem and reinforce positive behaviour among at-risk youth. Implementation Edmonton City Council make this request to Edmonton service clubs.

4.

Service agencies successfully combatting substance abuse among children be given additional support to expand service and reduce fees. Implementation Edmonton City Council request this of AADAC and the Alberta Family Life and Substance Abuse Foundation.

"Drugs are easy to get in Edmonton - It's easy to score if you have the money."

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N. INTEGRATION OF SERVICES Fragmentation of services to children in Alberta is a major problem. As several of the key services for children and youth in Edmonton are provided directly by the Provincial government, this problem directly affects services to children in Edmonton. Furthermore, services to children and youth in Edmonton are organized in such a way that a high degree of specialization now exists, with each group of service providers focusing almost exclusively on only one problem area. The following example illustrates the dilemma of fragmentation. A sixteen year old juvenile prostitute working the streets of Edmonton is typically coping with a variety of personal problems. She may be a school drop-out in which case she will have failed (for whatever reason) to have fully benefitted from the educational system. This would be a concern for a school board and the Department of Education. It is not unusual that such a young person would have young offender status, which would bring her into contact with both the court system (Attorney General) and the corrections system (Solicitor General). As well, she could have status under the Child Welfare Act (Family and Social Services) If she wishes to explore legitimate employment opportunities, she might approach Career Development and Employment or Canada Employment and Immigration. The sexually transmitted disease she may contract on the streets would be treated by the Sexually Transmitted Disease Clinic of Alberta Health. If she has a substance abuse problem, treatment is through AADAC. And so on. The above example is entirely plausible and, unfortunately, not unusual. In reality, many young people in difficulty experience even more complicated circumstances. The problem of coordination of services is necessitated by the fragmented nature of our service system. The fragmentation is perpetuated by government departments and service agencies pulling their mandates closer as the current economic down-turn limits increases in social spending while demand continues to increase unabated. Examination of circumstances by the Committee, and input and advice from community agencies and government has led to the following recommendations which are essential to help ensure that those in need receive effective services and that the resources are available when needed.

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Recommendations 1.

The Provincial government establish a Minister and Department of Child and Family Services. Implementation a) Edmonton City Council request this of the Premier of Alberta. The Department would consist of programs from the current Education, Health and Family and Social Service departments as well as other appropriate services. b) Edmonton City Council approach other Alberta municipalities to support and advocate for this.

2.

The Provincial government develop pilot projects, including one in Edmonton, to integrate Provincial services to children at the service delivery level. Implementation Edmonton City Council request of the Premier of Alberta that this be effected.

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