Running Head: GENDER-BASED VIOLENCE IN THE SCHOOLS 1

Gender-Based Violence against Newcomers and Refugee girls in the Schools at the Toronto

District School Board

Sandra Yalta Macedo

University of Windsor

Social Policy Analysis and Development

 GENDER-BASED VIOLENCE IN THE SCHOOLS 2

Gender-Based Violence against Newcomers and Refugee girls in the Schools at the Toronto

District School Board

Gender- based violence is a persistent social problem widespread throughout our society

and sexual assault and sexual harassment are forms of gender based violence that affect women

of all ages and backgrounds. Sexual assault is a “form of assault that involves any type of

unwanted sexual activity. A sexual assault occurs “when consent has not been given and the

sexual integrity of the victim is violated. It may include the use of physical force, threats or

intimidation” (Canadian Resource Centre for Victims of Crime, p. 1). The Ontario Human Rights

Commission (OHRC) defines sexual harassment as “someone disturbing an individual by saying

or doing unwanted or unwelcome things of a sexual or gender-related nature. For example,

someone who makes unwelcome sexual or gender-related remarks and gestures by: touching an

individual inappropriately, making offensive jokes or remarks about women or men, making

sexual requests or suggestions, staring at or making unwelcome comments about the body,

displaying sexually offensive pictures, or being verbally abusive to someone because of the

individual’s gender” (OHRC, n.d., para. 1).

Girls and young women in the schools are not exempt from this problem. Research from

the Centre for Addiction and Mental Health found that 46% of girls in Grade 9 and 11 reported

unsolicited sexual attention (Wolfe & Chiodo, 2008, p. 3). In 2008, a survey of students

conducted by a Community Safety Advisory Panel (appointed by the Toronto District School

Board [TDSB]) at two Toronto high schools, found that sexual harassment and sexual assaults

are prevalent in alarming rates. In one school, 18.3% of female students reported being sexually

assaulted and 29.3% of female students were victims of unwelcomed sexual attention in the past

two years while at the school (School Community Safety Advisory Panel [SCSAP], 2008).
 Running Head: GENDER-BASED VIOLENCE IN THE SCHOOLS 3

p. 374). Furthermore, the TDSB Crisis Intervention Reports and Weekly Incident Reports

registered 31 incidents of sexual assaults on school property across the board between September

2006 and December 2007 (SCSAP), 2008).

Many authors argue that that while all girls and young women are at risk of being

sexually victimized, newcomers and refugee girls, among other vulnerable groups in the schools,

are at higher risk of being sexually harassed or assaulted by their peers. Factors such as race,

class, gender, immigration status, language barriers, discrimination, and stigma among others,

place these girls at higher risk than others. (Steenbergen & Foisy, 2006; Wolfe & Chiodo, 2008,

SCSAP, 2008). Bryant-Davis, Chung and Tillman (2009) found that the psychological impacts

on these girls are post-traumatic stress disorder, low self-esteem, depression, substance use,

suicidal thoughts and somatic symptoms.

Social service agencies representatives, students and teachers from communities across

Toronto agree that newcomers and refugees girls in the school face additional vulnerabilities due

to language barriers, isolation, pressures to assimilate the norms of the host culture while

retaining the culture of their country of origin, and a lack of necessary supports and resources

(Jiwani, 2006). Given the complexity of navigating the school system, these girls find it difficult

to understand the school policies and procedures, and the information that they could receive

from their peers is often inaccurate. Additionally, this group tend not to report any incident due

to fear that their experiences and feelings will not be validated, fear retaliation from perpetrator

and other students and fear of being blamed by others (SCSAP, 2008).

The Community Safety Advisory Panel exposed an incident involving the sexual assault

of a 14-year old racialized female student by six of her male classmates. This case was known by

the school authorities; however, no further steps were taken to address the event. The
 GENDER-BASED VIOLENCE IN THE SCHOOLS 4

perpetrators were not removed from the school, nor did the victim receive appropriate supports.

Instead, she asked to be transferred to a different school to avoid being further victimized by

other peers since they came to know this incident (SCSAP, 2008).A source, reported by the

Toronto Star, said “she was apparently chosen because [Muslims] are less likely to report it,

because of their strict parents and cultural taboos” (“Sexual assault,” 2007).

This is just an example how immigrant and refugee female students are more vulnerable

to being singled out by their peers, not only because of their gender but also because of their

race, class and immigration status. Furthermore, stereotypes about women from certain ethno-

racial groups, culture or religion can be detrimental for these girls. In the case of the student who

was victimized, school administrators believed that “due to the young woman’s ethnic

background and religion, she would be subject of abuse by her parents if they were to become

aware of the incident” (SCSAP, 2008, p. 371). This negative stereotype about her cultural and

ethnic background interfered with the chance of receiving adequate supports to address this

issue. Instead, this made her more vulnerable to violence and sexual harassment by other peers.

Policies and programs addressing gender-based violence and sexual assault and

harassment tend to have a neutral approach. However, these additional vulnerabilities

demonstrated that there is a need for ongoing supports and resources specific to this group. These

could include: education about the school system; learning about norms of the host culture and

without discarding their culture of origin; safe spaces for newcomers and refugee girls who have

difficulties speaking English; peer support and self esteem building groups specific to this

population; preventive programs or material in different languages; and educational programs to

raise awareness about rights and resources available to address needs. All these programs could
 Running Head: GENDER-BASED VIOLENCE IN THE SCHOOLS 5

be an instrument for empowerment so that this group of girls can gain control of their own lives,

not only in the school but also in the community

Despite the anecdotal evidence of the impact of these intersecting vulnerabilities on the

lives of these girls, there is limited quantitative and qualitative research on the realities of

immigrant and refugee girls in the Canadian schools, and how racism, sexism, classism and other

forms of oppression impact their lives. This limits the ability to develop policies and programs

that address their specific needs (Berman & Jiwani, 2001).

Gender-Based Violence Policy at the TDSB

Policy historical analysis.

Formerly, TDSB responded to incidents of Gender -based violence through three

operational procedures. The first is “Consequences of inappropriate student behavior” (PR697),

this procedure makes mandatory expulsions and notifications to the police in circumstances in

which the student has committed physical or sexual assault. There was an amendment to this

procedure on February 2008, in which Principals were given discretion to report to the police and

suspend students from one to 20 days in circumstances where a student committed sexual or

racial harassment (TDSB, 2008).

The second is the Operational Procedure PR698 “School Board Joint Protocol”, signed

on November 21, 2006 by the Police, the TDSB, the Toronto Catholic District School Board, and

the French Catholic and Public Boards. Under this protocol, incidents, such as physical sexual

assaults, gang-related or any other incident that causes physical harm, should be reported to the

police as soon as possible (TDSB, 2006).

Finally, the most comprehensive policy response to sexual assaults at the TDSB was

through “Dealing with Abuse and Neglect of Students” (Policy 045). It had a “zero tolerance”
 GENDER-BASED VIOLENCE IN THE SCHOOLS 6

approach to physical, emotional and sexual abuse and/or neglect of students” (SCSAP, 2008 p.

383). Another distinction about this policy is that it set up provision of necessary supports for

the victim and perpetrator and makes a distinction between perpetrator 12 under and over. The

following is an historical analysis of the development of this policy.

May 23, 2007 Panel found out about a

15 year old Jordan sexual assault incident that
TDSBManners
established
wasthe School
shot Community
to Few weeks laterSafety Advisory Panel to enquire into concerns related to school safety
Panel consultation process happened in 2006, which
death in a TDSB school went unreported. The victim
was from an ethno-racial
minority group.

July 6, 2007
June 27, 2007 TDSB asked the panelResearch
to process findings Research demonstrates that all
A confidential interim Response female students are at risk of
ensure it is including the
report was sent to the “particular risks to the gender based violence. However,
TDSB director safety of female visible class, disability, immigration
minority students that may status among others, makes some
exist in our schools “ female students more vulnerable.

January 2008
One the road to health Filter April 2010
Leadership Action Gender-Based Violence Prevention (GBVP)
report
Team Report
recommendations:

hobic and other youth related suicides in the Media Influence

December 2008
Ministry of Education Report Recommendations
 Running Head: GENDER-BASED VIOLENCE IN THE SCHOOLS 7

The policy.

The TDSB adopted the Gender-Based Violence policy on April 2010 following the

recommendations from the School Community Safety Advisory Panel (SCSAP) and the Board’s

Leadership Action Team (LAT). Additionally, this policy has been influenced by the

recommendations made by the Ministry of Education Report on Gender-Based violence and

homophobia. This policy is supported by the operational procedures “Abuse and Neglect of

Students” PR560 and “Sexual Misconduct by Students” PR608.

The TDSB understands gender –based violence as a problem rooted in socially

constructed definition of sexual identity, sexual orientation, gender, perceived gender, and sexual

behaviour. This creates an imbalance of power a control between members of society, in which

discrimination, harassment and hatred are manifested (TDSB 2010, p.1). The TDSB further

defines the problem of gender based violence as “any aggressive action that threatens safety,

causes physical, social or emotional harm and denigrates a person because of his or her gender

identity, perceived gender, sexual identity, biological sex or sexual behaviour” (TDSB p.1). With

this definition the policy makes a distinction between the different types of gender-based

violence, such as sexual assaults, inappropriate sexual behaviours, psychological, emotional and

domestic abuse, etc. On important aspect of this policy is that it includes homophobia and

transphobia in its definition.

Research shows that gender-based violence affects women and men differently. While

men are more often victims and/or perpetrators of homophobic comments, women are

disproportionally represented on gender-based violence incidents. A gender based violence

policy should recognize the asymmetric power differential among men and women (Marshall,

1998). In that sense, the definition of Gender Based Violence in the TDSB policy uses a gender-
 GENDER-BASED VIOLENCE IN THE SCHOOLS 8

neutral approach to the problem because it fails to recognize how patriarchal power and privilege

get reinforced in society. Since it has a neutral approach to the problem, this policy assumes that

all male and female students have the same needs. Even further, not all women are affected by

these power differentials in the same way. Some will be affected not only because of their gender

but also by other forms of oppressions. In the case of newcomers and refugee girls, they will also

be affected by their race, class, immigration status, language barriers, etc. Treating all students in

the same way will not guarantee the same outcome for all. Making a differentiation between

genders will ensure the achievement of equal results.

Value Criteria

There are some considerations that should have been taken into account around the

development and implementation of this policy.

Adequacy.

As pointed out by Mackenzie and Wharf (2010), adequacy tries to measure how much the

provision of services will meet the needs of the target population. In terms of this policy, the

GBV team has been working to build capacity among students and staff, develop and implement

guidelines, and to promote and prevent around Gender –based violence issues (TDSB, 2010).

The team runs workshops, forums, peer-education training and other related activities to educate

students and staff to fulfill its mandate.

An identified need for the board is to focus on the issues of homophobia and transphobia

that the LGBTQ students face in schools. This focus is aligned with the Ministry of Education

report recommendations and current political will. As intended impact, GBV policy has been

successfully running prevention programs and awareness about healthy students’ relationships
 Running Head: GENDER-BASED VIOLENCE IN THE SCHOOLS 9

benefiting students, victims of homophobia, transphobia and in minor degree to female students

in general. Furthermore, there are approximately 27 programs that the GBVP office is currently

running. Out of this number, none of them create awareness on issues faced by other vulnerable

groups such as newcomers and refugee girls in the schools (TDSB, 2010). As a consequence, it

has created intended and unintended impact among the vulnerable student populations.

Mackenzie and Wharf (2010), also affirm that in order to develop an equitable policy it is

important to consider the issues of human rights, social justice and the promotion of self-

determination among the target population. In the case of the GBV policy, it does partially.

Community participation.

Community participation in policy development should go beyond any degree of

tokenism (Mackenzie & Wharf, 2010). It should encourage community empowerment, in which

the vulnerable groups take control over their destiny. Community participation in the

development of policy is crucial to effectiveness. In the context of the TDSB, community refers

to inside members such as student body and schools staff; and outside community partners and

organizations such as settlement agencies, organizations with expertise on gender-based

violence, agencies with expertise on youth and violence, ethno- specific agencies and so on. One

of the recommendations made by the School Community Safety Advisory Panel was to create a

gender-based policy with the” consultation” of community and organizations experts on the

topics of sexual assault and gender-based violence. (SCSAP, 2008). However, the development

of the GBV policy does not reflect any degree of community involvement (TDSB, 2010).

SCRAPS.
 GENDER-BASED VIOLENCE IN THE SCHOOLS 10

The definition of gender-based violence by the TDSB policy does not meet the SCRAPS

lenses because it assumes that all students, within the vulnerable populations, are affected by the

problem in the same way. Extrapolating from its definition, this policy does not recognize that

gender-based violence also intersects with other vulnerabilities such as race, class stigma and

discrimination to placing some women at higher risk than others.

Callahan (2010) affirms that gender interacts with other forms of oppression. Women and

girls who are disadvantaged by socially constructed vulnerabilities, such as race, gender, class,

among others, will experience higher levels of harm in their lives. In the school context, these

vulnerabilities are as a result of limited formal supports within the school community, language

barriers, and lack of network of friends (School Community Safety Advisory Panel, 2008). If

these factors interact with sexual harassment and assaults, it will have a greater impact on the

lives of these students and will engrain even deeper the power imbalance that already exists

between genders. Because these imbalances are not being addressed, the needs of these girls are

not being met.

It is important that the policy expands its approach and include a program that addresses

the gender-based violence towards refugee, newcomer and ethno-racial minority girls in the

schools. Racism, sexism, classism and other forms of discrimination limit this group to be part of

an equitable and inclusive educational system and prevent them from accomplishing the Ministry

of Education goals of high levels of school achievement, reduce gaps in student achievement and

increase public confidence in publicly funded education (Ontario Ministry of Education, 2009).
 Running Head: GENDER-BASED VIOLENCE IN THE SCHOOLS
11

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