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National Missing Children Services Functions
Research and Program Development
Analysis I National Missing Children Services
Analysis II CPIC Data Collection and Analysis
Programs, Services and Initiatives
National Missing Children Services (NMCS) extends its appreciation to all the partner police agencies that made a commitment to entering missing child reports into the Canadian Police Information Centre (CPIC) system, and for keeping the CPIC records current. A special thank you is extended to the law enforcement officials and coordinators who work diligently on missing children investigations and initiatives in their provinces.
This report was prepared with the assistance of the staff of NMCS, Marlene Dalley, Ph.D., author, and Stephan Hobbs, MCR data collection and tabulation, as well as the Canadian Police Information Center (CPIC) services for producing national data. Appreciation is also extended to Sandra Hatzis for her preliminary work, along with Jasmine Gao, revising the Missing Children’s Registry (MCR) database.
We also wish to thank the RCMP Foundation for their assistance to National Missing Children Services.
National Missing Children Services (NMCS) is the only national missing children clearing house for information and assistance to police, not-for-profit agencies and parents. It is proud to have been serving Canadians for the past 23 years.
From December 1988 to December 2009, 11,144 cases were opened and 8,410 cases closed. Currently, 2,734 cases are active.
Yearly, the NMCS tracks and stores information on its cases. The results of this research show that in 2009, NMCS provided investigative assistance to 85 Canadian missing children, 306 United States children, and 234 children living in other countries, excluding United States, for a total of 625 cases.
The NMCS researcher also analyzes the missing children entries in the Canadian Police Information Centre (CPIC) system. Entries are made by accredited Canadian police agencies. An analysis of the 2009 reports showed that the total number of missing children reports decreased from 56,102 in 2008 to 50,492 in 2009. The number of reports in all categories of missing children decreased, whereas in 2008 only the runaway, and wandered off reports decreased.
The runaway category composes almost three-quarters of the missing children reports. More females than males run away and more often (28%) from their family residence, while 23 per cent run away from foster homes. Eighty-three per cent of runaway children have a history of repeat or chronic running episodes. Seventeen per cent had no history of missing.
The parental abductions reports, both custody and non custody, totalled 237 incidents, the lowest number since the service opened in 1987. In 2008 and 2009, more male children than females were abducted, a change from 2006 when more females were reported missing. In 2008, the majority of the parental abduction missing cases had a custody order in place, but in 2009 more reports were made without a custody order. Forty-one per cent of the children were under the age of 5, 31 per cent between ages of 6 and 11, and 28 per cent between the ages of 12 and 17. Sixty-eight per cent were last seen at their family residence and 5% at foster care.
Stranger abduction reported incidents decreased from 56 to 50 incidents. More females than males were reported missing. Fifty-eight per cent of the children disappeared from their family residence and 16% from foster care. Twenty-eight per cent were under the age of one, 30 per cent were age 14 and 15, and 20 per cent were age 16 and 17. This shows a trend toward missing adolescents.
In 2009, 50,492 transactions were entered and 48,490 transactions were removed from the CPIC system. Sixty-one per cent were removed in the 24 hours following the initial missing report, and 85 per cent were removed within a week. Note: The 2009 “removed” transactions may include children entered on the system in previous years but who were found in 2009, and then removed.
The NMCS and its partner agencies offers several services to law enforcement agencies and the families of missing children, including a travel reunification program, photo age progression service, training for law enforcement officials, and updates on the AMBER Alert program. This year, National Missing Children Services added to its mandate a role of national AMBER Alert program administration and training coordination.
The NMCS works closely with National Child Exploitation Coordination Centre (NCECC) to combat Internet-facilitated sexual criminal activity that targets, exploits, victimizes, and abuses children and youth.
The NMCS collaborates on missing children cases with several federal government departments and agencies: the Department of Foreign Affairs and International Trade Canada, Department of Justice Canada, Canada Border Services Agency, Royal Canadian Mounted Police and its international partners, and the United States National Center for Missing and Exploited Children. Together the Canadian partners make up the “our missing children” program.
It also recognizes and works with several not-for-profit agencies such as Child Find Canada and its provincial offices, the Missing Children Society of Canada, the Missing Children Network Canada, Victims of Violence: Canadian Centre for Missing Children, Operation Go Home and International Social Service Canada.
NMCS is the only national missing children clearing house for information and assistance to police, not-for-profit agencies and parents. It was created to assist law enforcement agencies in the investigation, location and return of a missing child to their parent or legal guardian. The service is linked to all Canadian police and related agencies through the Canadian Police Information Centre (CPIC), to United States police agencies through the National Crime Information Center (NCIC), and to most foreign police agencies through Interpol.
National Missing Children Services has a two-fold mandate: Operations; and Research and Program Development.
NMCS is an investigative and operational support unit assisting Canadian agencies with their investigations. It coordinates national and international investigations with law enforcement agencies by using its network of contacts. NMCS works co-operatively with municipal, regional, provincial and national law enforcement agencies as well as with other Canadian searching organizations.
In 2002, NMCS announced the appointment of a national AMBER Alert program coordinator. The coordinator provides advice and updates on the program to Canadian law enforcement and searching agencies. NMCS liaises with Transport Canada regarding employee training, as well as providing training to Canadian law enforcement agencies. In 2009, NMCS extended its service to include program liaison and training nationally. NMCS also has partnered with National Child Exploitation Coordination Centre, Royal Canadian Mounted Police National Police Services investigators to determine if there are links to other crimes against children, such as the trafficking of children, Internet luring, and pornography.
The researcher conducts original studies:
In 2007, NMCS collected information from left-behind parents whose children were abducted by the other parent or guardian. Canada’s not-for-profit agencies supported this research by contacting their clients and requesting their participation. The final research report has been released in English and French and is available on the NMCS web site.
In 2008-2009, NMCS collected information on the Domestic Trafficking of Children by interviewing informed persons in Canada - 175 interviews were conducted in 20 Canadian cities and a few towns. The findings are presented under the Research Update section of this report.
An extensive reference report on Canada’s missing children is written and published yearly. The report is launched by a federal government officially on May 25th, National Missing Children's Day and is available at www.ourmissingchildren.gc.ca.
The research officer responds to media and public inquiries for national statistical information, trend analysis, and research study findings related to children and youth. Research data collection and methodological advice and feedback on university graduate and post-graduate papers are provided to national and international students. As well, research and crime trend articles about missing children issues are published in law enforcement magazines.
To fulfil its prevention objectives, NMCS has developed a safety booklet, including information on “What to Do If Your Child Is Missing,” “Safety In Cyberspace,” and “Keeping Children Safe.”
Reports, booklets and research studies are available by contacting the service at 1-877-318-3576 (toll free line) or visiting the website at www.ourmissingchildren.gc.ca.
This report is divided into two sections. The first section looks at operational files from the Police Information Retrieval System (PIRS), Police Reporting and Occurrence System (PROS) and Missing Children Registry (MCR) which is an internal monitoring system used by National Missing Children Services (NMCS).
The second section focuses on the National Missing Children and Youth Police Occurrence Reports perspective as generated by the Canadian Police Information Centre (CPIC) system.
The NMCS tracks and stores information on its cases yearly. The results of this research are as follows:
In 2009, National Missing Children Services (NMCS) assisted with the investigation of 85 missing Canadian children. Of the 85, 33 were female, 51 male, and one of “unknown” gender. Of all cases, assistance was requested most often in the winter months, with more reports in November (15) and December (15). To explain this phenomenon, children are often reported missing before and after a holiday, such as Christmas or school break in summer. This year 21 reports were received in June, a month when most children begin summer holidays, and with the warmer weather youth have more of a tendency to run away.
NMCS assists with more parental abduction cases, than the other categories of missing.
The number of cases handled by NMCS has steadily decreased - a downward trend that began in 2002 until 2008. This trend may be the result of ongoing training to Canadian law enforcement provided by NMCS operational staff. Also, in 2006, the police computer system was revised, which could have affected the change as well.
Table 2 is a comparison of the frequency of requests by year of cases, perhaps involving more than one child.
Table 2 — Frequency of Requests for Assistance by Year and Total Cases
| 2008 | 2007 | 2006 | 2005 | 2004 | 2003 | 2002 |
|---|---|---|---|---|---|---|
| 86 | 65 | 100 | 127 | 130 | 142 | 175 |
In 2009, a revamp of the MCR data collection system occurred as well changing the data collection methodology slightly.
NMCS works closely with the United States law enforcement community and supports its partner service, which is the United States National Center for Missing and Exploited Children, a not-for-profit agency. Since the two countries share a common border, it is important for investigators to be vigilant and co-operative in their investigations in order to prevent illegal border crossings.
In 2009, NMCS assisted with the missing investigation of 306 children.
Female missing children made up 163 of the cases, male children made up 141 and for two incidents the gender was unknown.
NMCS classified 40 per cent of the United States cases as parental abduction and three per cent as runaway children. However, for 58 percent (rounded) of the cases, the category of missing was not specified.
International requests for assistance continue to be an important component of our mandate. When a child is missing from another country and there is some indication the child may be in Canada, NMCS opens a file and assists with the investigation in Canada.
In 2009, NMCS assisted with the missing investigation of 234 children. More females than males were missing.
Thirty-six countries requested assistance with their investigations, including, Mexico (23), Belgium (11) and Denmark (9).
CPIC entries are made by accredited police agencies in Canada when there is a need to utilize this service. In addition to other information, the CPIC system houses the national data base on missing children (See Appendix 1 for a comparison of reports by year, and Appendix 2 for the 2009 CPIC total missing children reports by category, and province.)
The total number of missing children reports decreased from 56,102 reports in 2008 to 50, 492 in 2009. The number decreased in all categories of missing whereas in 2008, only the wandered off and runaway reports decreased. A CPIC analysis of ALL missing children 2009 reports by category is as follows:
Since the beginning of the program in 1987, missing runaway children consistently make up the greatest number of reports.
In 2009, there were 35,768 missing runaway reports, a decrease from 2008.
58% of the children entered in the runaway category were females and 42% were males.
Over 83% of both males and females had a history of repeat or chronic running episodes. Seventeen per cent had no history of running away.
Parental abduction reports decreased in 2009 to 237 from 300, the lowest in a decade.
125 males and 112 females were reported missing. The trend changed in 2007, from females missing to more males missing.
127 had no custody order in place and110 of the reports had a custody order in place. This is a change from last year where more reported incidents had a custody order in place.
41% of the children were under the age of 5 years, 31% between 6 and 11 years and 28% between 12 and 17 years old.
Elementary school age children were more likely to be abducted than children over 12 years of age.
76% had no history of missing, while 24% had a history.
68% went missing from their family home, and 7% from a foster home and child care.
Ontario (94), Quebec (56), British Columbia (37), and Manitoba (16) had the most parental abduction reports.
58% of the missing reports were removed within 24 hours. Some of these reports may include missing reports of children running away in previous years and located in 2009.
There were 50 reports entered in the stranger abduction category, which includes abductions by strangers, relatives and close friends. This year the numbers decreased from last year by 6 incidents, 56 (2008) and 50 (2009).
28 females and 22 males were reported missing.
28% were under the age of one, 30% were 14 and 15 years of age, and 20% were 16 and 17 years of age. More teens were abducted by strangers.
58% had no previous history of missing and 42% had a history.
58% went missing from their family residence and 16% from a foster home.
British Colombia (16) and Ontario (11) had the most reports of stranger abduction, including relatives and close friends.
78% (45 reports) were removed within 24 hours. Some of these reports may include missing reports of children running away in previous years and located in 2009.
There were 11, 757 unknown reports, a decrease by 684 reports from 2008. This category is used when there is no previous record of the missing child. Also, there is insufficient background information to enable coding the missing incident under any of the other causes. More female (37) than male (31) children were reported missing. Most unknown missing children reports were ages 14 to 17 years, 48% of females and 34% males.
Sixty-six per cent of the missing reports were characterized by “repeat, chronic or habitual” missing characteristics and 34% no previous history.
Twenty-five accident reports were received, a decrease of 12 reports from 2008. This probable cause category is used when the body has not been recovered.
There were 432 wandered off reports in 2009, a decrease of 128 reports from last year. The wandered off category is used when it is presumed the child has wandered away and not returned when expected. Feedback received from the Canadian law enforcement community has revealed that this category is sometimes used to enter youth who are missing from social service care, such as not having permission to leave their housing. More males (233) than females (199) are reported in wandered off category of missing.
There were 2, 223 reports classified as other, a decrease of 196 reports from last year. This category is used when a child/youth has not returned to a detention home or institution housing young offenders.
An analysis of CPIC 2009 missing children reports by combining all categories of missing shows:
78% of all missing children reports had repeat or habitual characteristics of missing. The remaining 22% had no previous history of missing.
83% of all missing children reports involved children ages 14 to 17 years, with more missing reports entered in CPIC in the 14 and 15 year-old category.
Children less than five years of age represented 1.0% of the total number of all missing children reports. More males (314) than females (268) were reported missing under the age of 5 years.
More males (179) than females (142) less than age 1 year were reported missing. This was a change from last year when more females were reported missing, and also there was a decrease in the total by 85 reports.
29% of the children went missing from their family residence while some went missing from a type of arranged care, 23% from foster care and 5% from child care.
35% went missing from institutions - school, detention and youth centers and those classified as “other” institutions. Less than 1% of all missing children went missing from a shopping mall, place of work, or while on a vacation.
Law enforcement agencies cited alcohol or drug dependency as a problem in 18% of missing children reports.
48, 490 (96%) transactions were removed from the CPIC system in 2009. Sixty-one per cent were removed in the first 24 hours of having been reported missing, and 85% were removed within a week.*
*The 2009 “remove” transactions may include children entered in previous years but who were found in 2009, and then removed.
NMCS and its partner agencies offer the following services to law enforcement agencies and families.
NMCS administers a Travel Reunification Program which provides travel assistance for parents who cannot afford to travel within Canada or abroad to reunite with their child and bring them home. Certain criteria must be met to qualify and the travel is subject to availability.
The Travel Reunification Program is coordinated with a transportation company and no funds are exchanged between the parent and NMCS. All arrangements must be made through NMCS services during its regular business hours, and it should be noted that the process may take approximately 48 hours. NMCS does not reimburse parents who have made prior flight arrangements.
In 2009, two left-behind parents used this program on separate occasions for the return of 3 children, less than age 11.
The America’s Missing Broadcast Emergency Response (AMBER) Alert program is a voluntary partnership between law enforcement agencies and broadcasters to activate an urgent bulletin when a serious child-abduction case is reported to police.
The plan was originally developed in 1996 following a search for nine year-old Amber Hagerman. While riding her bicycle near her home, Amber was kidnapped and murdered. Following this incident, citizens designed a search plan that involved community resources and the media. By using television, radio and the electronic highway signs, an abductor may be located more quickly.
The following basic criteria must be met before law enforcement can initiate an AMBER Alert:
The child must be under 18 years of age.
There must be confirmation that the child has been abducted.
Police must have sufficient descriptors to make a search for the child possible, such as descriptions of the child, abductor, accomplices, or the suspect’s vehicle.
Most importantly, police must judge that the child is in serious danger or risk of harm, and be convinced the broadcast will help find the child.
From January 2002 to December 2009 there were 37 activations issued across Canada. In 2009, one originated from the province of Ontario, involving a 13 year old girl, and two from Alberta, involving a five month old baby boy, and a 16 year old girl. The five month baby was recovered after the vehicle was stolen with the baby, who was left unattended. The baby’s safe recovery was directly related to the AMBER Alert, as a member of the public spotted the vehicle. The other two victims were returned home safely.
A total of 43 children were involved, 23 girls and 20 boys. Since 2002, and prior to 2009, three children were found deceased.
For more information on the AMBER Alert Plan, contact the National AMBER Alert Coordinator at National Missing Children Services, Canadian Police Center for Missing and Exploited Children at 1-877-318-3576.
NMCS provides a photo-age progression service for all Canadian law enforcement agencies and not-for-profit searching agencies. This service renders a likeness of what a child who went missing some time ago might look like today. Certain criteria must be met before the process is activated. For example, the child has to be missing for a minimum of two years. Canadian forensic artists perform the photo-age progression. Also, the National Center for Missing and Exploited Children provides an updating service in certain cases. In 2009, one request was forwarded to the U.S. National Centre for Missing and Exploited Children Centre for updating.
The Child Recovery Award recognizes the work and efforts of a Canadian individual or Canadian organization in the search for and safe recovery of a missing child or children.
The award includes two hospitality class tickets from Air Canada. Tickets are valid to any Air Canada scheduled destination (blackout periods and restrictions apply). The 2009 recipient of the award was The Zebra Child Protection Centre, located in Edmonton, Alberta.
The Zebra Child Protection Centre opened in 2002, spearheaded by the Edmonton Police Services. In an effort to protect children from many types of abuse, several agencies work together. They provide a child-focused approach to investigations by integrating police and protection services.
This multi-disciplinary team is composed of the following services:
In October 2008, this team handled an abduction case involving an eight year-old girl. An unknown male lured the young girl and her brothers toward his car by telling them he had some kittens for sale. As they approached the car, the boys were pushed out of the way, the girl forced into the back seat of his car and abducted.
Information on the incident was quickly received and AMBER Alert broadcast posted. A couple traveling on a highway heard the AMBER Alert broadcast and spotted the car. They called 911 and then continued to follow the car. The abductor, fearing apprehension, dropped the victim off at a gas station. An employee contacted the RCMP, who in turn called the Edmonton Police Service to report the victim was safe, and her location, so police could pick her up and return her to Edmonton.
Upon returning, she was interviewed at the Zebra Child Protection Centre, a child friendly environment, and by hospital and medical staff. The Centre skilled interviewers learned of the circumstances, including that she had been sexually assaulted, and that she was heavily drugged throughout the ordeal. The suspect was arrested and charged with numerous criminal charges.
The Award of Excellence
The Our Missing Children (OMC) Award of Excellence is represented by an Inukshuk, an Inuit word meaning “Image of man’s spirit.” This is one of the most prestigious national missing children awards offered by a program for child protection undertakings, investigative and otherwise.
This year, Peel Regional Police received the OMC Award of Excellence for their work with a victimized child. The Unit secured the first Trafficking in Persons conviction in Canada. As a result of their investigation, a chronic runaway who was forced into the sex trade from age 12 to 14 was rescued. With the help of investigators, she found a place to live, returned to school, and found a job. Without this kind of dedication to the protection of children, many would remain at risk of harm.
National Missing Children Services provides a two-day training workshop several times a year for investigators, law-enforcement representatives, and other individuals who are working in the field of missing children.
The goal of the course is to sensitize participants to the missing child investigative process as it relates to criminal and/or civil proceedings. This workshop is designed to provide the participants with additional tools needed to more efficiently and effectively conduct their investigation. An overview is given of the various resources available, such as the federal government, program partners, recognized not-for-profit agencies, government assistance agencies and other resources that can be used to augment investigations.
In 2009, no requests for NMCS two day workshop training occurred. However, two missing and exploited children information presentations were given in Montreal, Quebec and Ottawa, Ontario. Also, two international training sessions were given, one in Lubeck, Germany on runaway investigations at The Second Global Missing Children’s Network Training, and one in Halifax, Nova Scotia at The World Congress on Family Law and Children’s Rights. Approximately 170 law enforcement, service agency and government agencies attended these sessions.
Internet luring has become a major concern as it relates to missing and exploited children and youth. In this scenario, a stranger develops a relationship with the child over the Internet without ever meeting face-to-face. Then, attempts are made to meet the child in secret, placing the child in a position of vulnerability and danger.
From 2000 to 2008, NMCS assisted with the investigation of 33 Internet-luring investigations. NMCS luring cases are now investigated in co-operation with its partner service, National Child Exploitation Coordination Centre (NCECC), Canadian Police Center for Missing and Exploited Children. In 2009, no cases were handled.
In response to an investigator’s request for assistance, a NMCS operational analyst may investigate by:
The Internet is a powerful learning tool but parents need to be informed about Internet advancements, set the rules of use, be alert to any changes in behaviour, and attentive to other noticeable changes, such as the use of inappropriate language or dress for the child’s age group. Keeping a child out of harm’s way is the key to their safety. For your education, NMCS has produced a safety tips booklet, which is posted on its website at www.ourmissingchildren.gc.ca. The safety tips booklet is also available by calling 1-877-318-3576.
The NCECC was established in 2004 as the law enforcement component of Canada’s National Strategy for the Protection of Children from Sexual Exploitation on the Internet. The NCECC was created in response to the increasing problem of information-technology (IT)-enabled child sexual exploitation offences including the exchange of child sexual abuse images (i.e., child pornography) and child luring.
The NCECC is Canada’s contact point for files involving Canadian victims and suspects. The Centre provides a number of specialized investigative services including the ability to coordinate investigative files involving child sexual exploitation across national and international boundaries.
The NCECC plays a key role in the development, maintenance, and training in technology relating to Internet-facilitated child sexual exploitation, including the Child Exploitation Tracking System (CETS). CETS houses an image database that can be used to enhance victim identification efforts and intelligence sharing among Canadian investigators.
The Centre provides subject matter expertise and leadership in the following ways:
The NCECC is a founding member of the Virtual Global Taskforce (VGT), an alliance of international law enforcement agencies committed to combating online child sexual exploitation. Through the VGT and other international partnerships the NCECC is committed to providing investigational support in cases that cross international boundaries, including those that involve travelling child sexual offenders. Please consult www.ncecc.ca for more information.
NMCS liaises with not-for-profit organizations regularly to facilitate co-operation between the agencies and the police community. Several Canadian agencies meet a preset criteria for recognition by NMCS and they are listed under the heading “Recognized Organizations” on our website www.ourmissingchildren.gc.ca .
Their activities and services vary. They include searching for the missing child, distributing and posting photos, meeting and advising parents, conducting and supporting research studies, conducting crime prevention projects, and working with police to plan and carry out reunions.
National Missing Children Services works closely with United States law enforcement agencies and the United States National Center for Missing and Exploited Children (NCMEC) in searching, recovering and returning missing children. Ongoing liaison between the two countries has proven effective in finding missing children who may have crossed over borders, either on their own or with a parent or stranger.
NCMEC coordinates the efforts of law enforcement, social service agencies, elected officials, judges, prosecutors, educators, the public and private sectors in the United States in an effort to break the cycles that historically perpetuate crimes against children.
NCMEC also offers assistance with poster distribution to NMCS through its LOCATOR program. This is an advanced, web-based computer program offered to law enforcement agencies free of charge. It helps agencies create and distribute professional looking posters across the nation. Currently, the LOCATOR program is used in more than 4,000 law enforcement agencies in the United States, and several in Canada. Canadian law enforcement agencies can also take advantage of the NCMEC services to produce Amber Alert posters at no cost.
NCMEC sponsors yearly training for the Canadian AMBER Alert coordinators at various locations throughout the United States. These meetings provide participants with regular updates on search techniques, help identify pitfalls and assist in making the necessary revisions to improve the program.
To contact this partner agency, call the toll-free hotline 1-800-THE-LOST or 1-800-843-5678, which is available in Canada and the United States 24 hours a day, seven days a week. Information about missing and exploited children can be reported via a CyberTipline at http://www.cybertipline.com.
NMCS has closely monitored its missing children files for indications of domestic and international trafficking of children. Since 2007, 5 cases were flagged by operational analysts as possible trafficking, one in 2009. The one case opened in 2009 involved 14 minors who were missing from a North America country. These missing children, mostly boys range from age 3 to 15, with more children age 13 to 15 years.
The National Child Exploitation Coordination Centre and the RCMP Human Trafficking National Coordination Centre, Immigration and Passport Branch, work closely with NMCS on these cases in an effort to locate and protect victimized children.
In 2008-09, NMCS conducted a national research study on the Domestic Trafficking of Children. The findings were shared with law enforcement and government agencies.
The search for and return of a missing child requires co-operation and collaboration among the following agencies: Canada Border Services Agency; Department of Foreign Affairs and International Trade; and the Department of Justice Canada.
The main duties of these departments are as follows:
The Canada Border Services Agency (CBSA) has made it a priority to manage a national program that effectively allows all front line officers the ability to identify, intercept and handle situations involving abducted or runaway children. Efficient training practices and procedures allow Border Services Officers the ability to successfully monitor and maintain a presence on all Canadian land, air and sea ports of entry. Real time targeting information and intelligence is analyzed and disseminated allowing ports of entry to prepare for and remain vigilant when faced with a situation involving missing children. Additionally, a constant flow of intelligence information is exchanged daily between the CBSA, its law enforcement and program partners.
Once a potential case involving either a missing child and/or their suspected abductor is encountered, the CBSA National Risk Assessment Centre (NRAC) or Regional Intelligence Officers will initiate Border Alerts and notify the ports of entry, providing them with the specific details of the situation and ensuring front line officers receive up to date information as it is collected. All recoveries of children are reported throughout the CBSA and shared with program partners and law enforcement organizations, enabling affected families to be informed and reunited as quickly as possible.
The CBSA program is consistently managed across Canada through a national coordinator, in conjunction with eight regional coordinators who provide functional program support, information and tools to the front line officers. Beyond these efforts, the CBSA proactively promotes awareness by distributing bulletins, reports and newsletters at public events across Canada.
By providing this information and sharing best practices nationally and internationally, parents and children alike are afforded with the knowledge they need to ensure a safer travelling experience.
Children’s Issues Section
Consular Operations Bureau
The Case Management Officers of the Children’s Issues Section of the Consular Operations Bureau are responsible for the management of international parental child abduction, child custody and child welfare cases.
The Consular Operations Bureau operates 24 hours a day, seven days a week, through a network of more than 260 offices in over 150 countries
When a child is abducted or retained in a foreign country, the Children’s Issues Section of the Consular Operations Bureau, through its missions overseas, undertakes diplomatic efforts in the foreign country to locate the abducted or missing child by liaising with Canadian and foreign authorities and/or other organizations.
The Children’s Issues Section offers a broad range of consular services to parents. For example, they provide information concerning the foreign country, attempt to confirm the entry of the abducted child into the foreign country, and in certain situations, they visit the abducted child and reported on the child’s well-being.
The Children’s Issues Section can also assist in the arrangements to reunify an abducted child with their left-behind custodial parent.
Since joining the “our missing children” program in 1996, the Children’s Issues Section has assisted with 978 International Parental Child Abduction cases from Hague and non-Hague countries, and has been successful in concluding 765 of these cases.
In 2009, the Children's Issues Section of the Consular Operations Bureau of the Department of Foreign Affairs and International Trade Canada (DFAIT) received 66 new international child abduction cases. During the same year, DFAIT has concluded 25 of the old and new cases.
The Department of Justice Canada (DOJ) has both an operational and a policy role in missing and abducted children's issues.
Part of the Department's operational role relates to the Hague Convention on the Civil Aspects of International Child Abduction, which applies in all provinces and territories of Canada. The Convention aims to secure the prompt return to their State of habitual residence of children removed to or retained in breach of rights of custody (in any country that is a contracting state to the Convention).The Convention also promotes the effective exercise of rights of access.
In Canada, there is a Central Authority in every province and territory whose duties include filing "outgoing" Hague applications regarding children who have been wrongfully removed and taken out of Canada, and processing "incoming" applications regarding children who have been wrongfully removed and brought into Canada.
There is also a Federal Central Authority (distinct from the Federal Central Authority for extradition requests), whose duties complement the work of the provincial and territorial Central Authorities. Those duties include liaison and coordination with provinces, territories, foreign authorities, other government departments and non-governmental groups on policy and in some cases, individual cases, as well as public education and promotion of the Convention.
The Department of Justice is also responsible for seeking the extradition of persons sought for prosecution, or the imposition or enforcement of sentence. Requests for extradition are made to a foreign state at the request of the competent Attorney General when the person is sought for prosecution or imposition of sentence, or at the request of the competent correctional authority when the person is sought for the enforcement of sentence. The extradition process does not address the return of the missing or abducted child. Rather, the purpose of seeking extradition is to return the alleged abductor to Canada to face trial or for the imposition or enforcement of sentence.
On the policy side, Family, Children and Youth Section of Justice has responsibilities for Canadian federal family law, including the parenting provisions of the Divorce Act.
In addition, the Department's International Private Law Section (IPL) is the national organ to the Hague Conference on Private International law. As such, it is notably responsible for negotiating private international law instruments dealing with issues of family law including the Hague Convention on the Civil Aspects of International Child Abduction and related issues, such as, trans-frontier access. The IPL Section also advises DOJ on the interpretation of the Hague Convention and leads the consultations within Canada on all matters related to the Hague Conference’s work including to prepare for Special Commissions to review the practical operation of the Hague Convention.
See the Department of Justice Canada link on the “our missing children” website at http://www.ourmissingchildren.gc.ca and follow the links to: www.canada.justice.gc.ca.
In 2008, National Missing Children Services senior research officer conducted a national study, funded by the Government of Canada, on the domestic trafficking of Canadian children as the issue relates to runaway, missing and other marginalized children, and sexual exploitation. This report was completed in 2009 and released as a working document in 2010. A summary is as follows.
In 2008, National Missing Children Services, RCMP, conducted a national research study funded by the Government of Canada to determine if the domestic trafficking of Canadian children exists and if so, identify the characteristics, trends, and challenges. This study was the first Canadian one to examine trafficking of children as it may occur from province to province, within cities and surrounding areas. For this report, anyone under 18 years of age is a child. Also examined, were the linkages to running away, homelessness, drug addiction, the sex trade and other at-risk factors and situations.
This study was a descriptive one. The researchers used a face-to-face interview approach to collect data. Since information on the domestic trafficking of Canadian children was sparse, the study intended to probe for information nationally and identify related characteristics and trends. Additionally, researchers anticipated that more nationally-focused studies were required to strengthen some findings.
A review of directly and indirectly related articles and reports, published prior to the commencement of the study, composed the literature review. Some themes were as follows: the definition of trafficking of persons, expanding the definitions, qualifying the problem, Canadian laws related to the issue, poverty, social isolation, aboriginal community observations, push and pull factors, organized crime involvement, and the gang connection. Although these reports addressed sexual exploitation and trafficking, at the onset very few studies related specifically to the domestic trafficking of Canadian children.
The project manager, in collaboration with the researchers, made appointments with the agencies in the towns and cities identified as research sites. Occasionally, one agency made a referral to another. This approach enabled researchers to interview well-informed persons in a community, consequently adding reliability and validity to the results. If time prevailed, researchers conducted an Internet search in the area to locate additional agencies, review their mandate and contact them for an interview. Some cancellations occurred and additional and substitute interviews were necessary.
The law enforcement persons interviewed most often dealt specifically with children under the age of 18 years, including organized crime, sexual exploitation, missing persons, trafficking in human beings and other issues involving children at risk. The front-line and other service agencies personnel provided information on, to name a few, child sexual exploitation, child victims, child trafficking, missing children, runaways, homelessness, prostitution, and drug use and/or drug addiction, whether on the street, at home or using the Internet to solicit clients. Also interviewed, were a few government agencies, participating in anti-trafficking initiatives.
The project manager selected six researchers based upon their qualifications and experience to gather information. Each researcher had access to an official letter, explaining the purpose and objective of the project and introducing the interviewer. The project manager addressed any additional questions.
The primary researcher, in consultation with the project manager, initially prepared fifteen open-ended questions. Some of the areas covered in the interview questions were as follows: missing children reporting, runaway investigative procedures, child trafficking knowledge and existence, concerns involving children involved in the sex trade, data collection information, marginalized groups identification and characteristics, child welfare challenges, sexual exploitation characteristics, organized crime and gang involvement. These interview questions served as a guide but the researchers were encouraged to collect as much information as possible about the issue. From time to time, to achieve this goal or to meet the requirement of compressed time limits, some questions were slightly changed.
There were 175 interviews conducted on the issue with police and service agencies in Canadian cities and a few selected towns. Based upon professional feedback and issue experience, the sites selected were as follows: Vancouver, Prince George, Kamloops/Kelowna, Calgary, Edmonton, Prince Albert, Fort McMurray, Regina, Winnipeg, Greater Toronto Area (GTA), Ottawa, Montreal, Fredericton/ Marysville, Moncton, St. John, Halifax, Gander, and St. John’s.
The interview period extended over a two-year period, but the majority occurred in 2008. In 2009, the project manager reviewed, analyzed and summarized twelve separate reports on the issue.
The results of the study showed the following:
In essence, Canadian children involved in the sex trade, were recruited, transported, isolated and exploited - some more openly and extensively than others. Some elements of the trafficking laws existed and were more prevalent in some forms, situations and areas. The findings also showed the urgency and necessity to protect children’s rights with national, regional and municipal plans to address the sexual abuse of children.
In reality, when a child/youth is involved in the sex trade, the situation may worsen at any time placing them at risk of harm. Their lifestyle “opens the door” to recruitment, exploitation, transportation and possibly trafficking. For this reason, it is important to “close the door” before it is opened.
In conclusion, Canada must continue to address domestic child trafficking with spirit and action, eliminating the hidden abuse and hidden crime affecting its children. In so doing, children’s rights will be protected as stated in The Convention on the Rights of the Child, Articles 34- 36, against all forms of neglect, cruelty and exploitation.
II. Parental Abduction
In 2007, a descriptive study on parental abduction was completed by the National Missing Children Services researcher. The study showed the nature of the problem, and its impact in Canadian left-behind parents and their abducted children. The results identified some pitfalls in the system.
The principle research findings were as follows:
Parental abduction is an emotionally charged experience for all involved. To protect the well-being of Canadian families, the missing report must be acted upon quickly and effectively. National Missing Children Services, Canadian Police Center for Missing and Exploited Children can provide investigational support. Police can access this service by calling 1-877-318-3576.
This research study is posted in English and French at www.ourmissingchildren.gc.ca and available at the Canadian Police College Library, Ottawa, Ontario.
III. Infant abduction From Canadian Hospitals
The abduction of a newborn from the hospital maternity ward is a rare occurrence in Canada. To date, from 1991 to 2008 (no known incidents in 2009) seven newborns have been abducted from hospitals, 5 by strangers, and 2 by a parent or person known to the family.
In 2007, a newborn was abducted from a northern Ontario hospital. After distracting the mother for a few minutes, a women posing as a nurse slipped out of the hospital with the newborn. Fortunately, the cleaning staff noticed a women walking down the hospital corridor with a baby in her arms - a practice contrary to hospital protocol as babies were required by staff to be transported in a bassinet. This irregularity triggered an alarm for a possible abduction.
Nonetheless, the abductor was able to leave the hospital unchallenged and traveled many hours to another Ontario town. An AMBER Alert was activated immediately and a province-wide search began.
Fortunately, the search was successful and the baby was returned to its parents unharmed. A 29-year-old woman was taken into custody and charged with abduction.
Following this incident, hospital officials reviewed their security procedures. This review resulted in an ankle tag requirement for all newborns. Also, several other important changes were implemented to better guarantee the safety of newborns.
The typical hospital abduction may involve a stranger. These persons sometimes pose as an employee, nurse or relative in order to gain access to the baby. A few studies showed that only a few perpetrators pose as hospital staff, but an analysis of Canadian cases showed half of the offenders were impersonators. Worthy of note is the fact that an abductor may use a hospital-like photo ID as part of a scam to gain access to the maternity ward. Since many new mothers want to keep their babies in their room, instead of leaving them in a supervised nursery, it is easier for an abductor to con the infant from its mother’s care. The impersonator usually requests the newborn be taken from the mother’s care for hospital tests, photos, and the like.
The abductors are usually females who really want a baby of their own. They are often overweight, compulsive, impersonators, married or cohabitating, and live in the community where the abduction takes place. They plan the abduction by visiting the hospital frequently and learning as much as possible about procedure, staff roles and floor plans. The perpetrators range from family members to unrelated childless couples making perverse attempts to procure a baby. Some abductors are pregnant and then have a miscarriage, others are not able to have children at all, while still others fake pregnancy and after nine months are obliged to produce a baby someway. Nonetheless, in most situations the abductor cares for the baby’s needs well.
Officials of the National Missing Children Services, RCMP in Canada and the National Center for Missing and Exploited Children in the United States recommend that mothers and families MUST visually inspect and ask questions of staff who wear photo ID badges. The nurse should present the badge to the mother and encourage the newborn’s mother and family members to carefully scrutinize and memorize the badge details. Also, it is extremely important for personnel to use specific colour coding and/or unique dress designs for uniforms, which identifies them as the authority designated to handle and/or transport a newborn.
For information on “Safety Tips for Expectant Parents,” please consult the National Center for Missing and Exploited Children web site at www.missingkids.com.
| Profile | Kidnap | PA | Run | Unknown | Acc | Wander | Other | Total |
|---|---|---|---|---|---|---|---|---|
| 2009 | 50 | 237 | 35, 768 | 11, 757 | 25 | 432 | 2, 223 | 50, 492 |
| 2008 | 56 | 300 | 40, 289 | 12, 441 | 37 | 560 | 2, 419 | 56, 102 |
| 2007 | 56 | 285 | 46,189 | 11,216 | 33 | 576 | 2,227 | 60,582 |
| 2006 | 46 | 326 | 46,728 | 10,761 | 24 | 567 | 2,009 | 60,461 |
| 2005 | 30 | 349 | 51,280 | 12,079 | 45 | 704 | 2,061 | 66,548 |
| 2004 | 31 | 332 | 52,280 | 11,373 | 27 | 671 | 2,552 | 67,266 |
| 2003 | 39 | 358 | 53,459 | 10,922 | 21 | 805 | 2,205 | 67,809 |
| 2002 | 35 | 429 | 52,390 | 10,994 | 38 | 594 | 2,052 | 66,532 |
| 2001 | 48 | 387 | 53,434 | 10,364 | 49 | 742 | 1,990 | 66,994 |
| 2000 | 42 | 416 | 50,633 | 10,031 | 35 | 597 | 1,958 | 63,712 |
| 1999 | 52 | 358 | 47,585 | 9,884 | 38 | 496 | 1,947 | 60,360 |
| 1998 | 42 | 426 | 48,388 | 10,254 | 28 | 623 | 2,326 | 62,087 |
| 1997 | 60 | 426 | 45,527 | 9,404 | 37 | 506 | 2,138 | 58,098 |
| 1996 | 45 | 409 | 43,717 | 9,181 | 34 | 822 | 1,914 | 56,122 |
| 1995 | 68 | 354 | 43,709 | 9,039 | 35 | 720 | 1,824 | 55,749 |
Kidnap= kidnapping/stranger abduction,
PA=parental abduction,
Run=runaways,
Acc= accident,
Wander =Wandered
Off Source: CPIC annual transaction report 2009, M.L.Dalley
Profile |
YT |
NT |
NU |
BC |
AB |
SK |
MB |
ON |
QC |
NB |
PE |
NS |
NL |
Totals |
Stranger |
0 |
0 |
0 |
16 |
6 |
1 |
3 |
11 |
7 |
2 |
0 |
1 |
3 |
50 |
Accident |
0 |
0 |
0 |
6 |
1 |
2 |
0 |
11 |
1 |
0 |
0 |
0 |
4 |
25 |
Wandered |
0 |
0 |
0 |
94 |
64 |
18 |
24 |
209 |
12 |
2 |
0 |
8 |
1 |
432 |
Parental |
0 |
1 |
0 |
37 |
13 |
14 |
16 |
94 |
56 |
2 |
1 |
3 |
1 |
237 |
Runaway |
3 |
11 |
0 |
4,757 |
4,456 |
2,149 |
3,435 |
13,634 |
5,183 |
618 |
20 |
1,336 |
166 |
35,768 |
Unknown |
2 |
5 |
0 |
4,759 |
573 |
779 |
730 |
3,065 |
1,638 |
58 |
5 |
75 |
68 |
11,757 |
Other |
0 |
3 |
0 |
679 |
59 |
30 |
38 |
835 |
518 |
4 |
1 |
51 |
5 |
2,223 |
Totals |
5 |
19 |
0 |
10,348 |
5,172 |
2,993 |
4,246 |
17,859 |
7.415 |
686 |
27 |
1,474 |
248 |
50,492 |
Canadian Police Center for Missing and Exploited Children
National Missing Children Services,
National Police Services,
Royal Canadian Mounted Police
Marlene Dalley, Ph. D.
Research Officer
marlene.dalley@rcmp-grc.gc.ca
Service Toll-Free Line 1-877-318-3576
Telephone (613) 993-1525
Facsimile (613) 993-5430
http://www.ourmissingchildren.gc.ca
For additional copies or alternative formats, please contact: 1-877-318-3576
© MINISTER OF PUBLIC WORKS AND GOVERNMENT SERVICES, CANADA (2010)
