Source document: https://docs-lawep.s3.us-east-2.amazonaws.com/1697631745909.pdf (Australia)
Rape & Sexual Assault Research & Advocacy (RASARA) S E X U A L V I O L E N C E P R E V E N T I O N : submission to the Parliamentary Inquiry into Family, G R E A T H O M E S D I G I T A L Domestic and Sexual Violence Katrina Marson Lead of Primary Prevention Projects Rape & Sexual Assault Research & Advocacy 24 July 2020 Inquiry into family, domestic and sexual violenceSubmission 34 Contents Introduction ............................................................................................................................................ 2 Sexual violence ........................................................................................................................................ 3 Comprehensive Relationships and Sex Education as sexual violence prevention ...................................... 4 Prevention lessons from international experience ................................................................................... 5 (a) Principles for Relationships and Sex Education design and delivery ................................................. 6 Recommendations for Relationships and Sex Education design and delivery .................................... 8 (b) Implementation success factors ...................................................................................................... 9 (I) ADVOCATE: ADVOCACY AND LOBBYISM ................................................................................ 10 (II) COMMIT: STRUCTURAL SUPPORT FROM GOVERNMENT & PUBLIC INSTITUTIONS ............. 11 (III) RECOGNISE: RECOGNITION OF RELATIONSHIPS AND SEX EDUCATION AS A SPECIALIST FIELD ....................................................................................................................................... 13 (IV) EQUIP: SCHOOLS, TEACHERS & EDUCATION PROFESSIONALS ............................................ 14 (V) ENGAGE: ENGAGING PARENTS & CAREGIVERS ..................................................................... 17 (VI) EVALUATE: EVALUATION & ACCOUNTABILITY ..................................................................... 19 Recommendations for Relationships and Sex Education implementation ....................................... 21 (c) Risks to implementation and mitigation strategies ........................................................................ 23 i. Resourcing .................................................................................................................................. 23 ii.
Opposition to Relationships and Sex Education .......................................................................... 24 Mitigation strategies ...................................................................................................................... 25 Recommendations for mitigating risk to implementation ............................................................... 27 Conclusion ............................................................................................................................................. 28 1 Inquiry into family, domestic and sexual violenceSubmission 34 Introduction 1.
Rape & Sexual Assault Research & Advocacy (RASARA) is an independent, not-for-profit organisation established to develop an evidence base for addressing sexual violence across Australia and to advocate for best practice in community and legal responses to rape and sexual assault against adults and children.

2.

RASARA’s mission is to produce and amplify research that drives reform to the laws and systems that contribute to the prevention and response to sexual violence.
More information about RASARA is available at rasara.org.

3.

Katrina Marson is a member and leader of primary prevention projects at RASARA.

This submission draws significantly on her research undertaken as a Churchill Fellowship in 2019, the detail of which has been published in the report Ignorance is not Innocence which can be located on the Churchill Trust Australia website.

4.

To that end, this submission addresses the first two terms of reference: i. ii.
Immediate and long-term measures to prevent violence against women and their children, and improve gender equality.

Best practice and lessons learnt from international experience, ranging from prevention to early intervention and response, that could be considered in an Australian context.

2 Inquiry into family, domestic and sexual violenceSubmission 34 Sexual violence 5.
Sexual violence is abhorrent, destructive and something Australian governments must wholly reject as having any place in our communities.

It is encouraging to see a commitment to prevention of sexual violence in the terms of reference for this Inquiry.

6.
6.

The impact of sexual violence and negative sexual experiences carries significant health, social and economic cost.1 Sexual violence can have a devastating impact on individuals, their families and communities; for example, long-term physical and emotional health, the capacity to undertake education, contribute to society and otherwise lead a fulfilling life can be severely affected,2 and the incidence of premature death increased.3 7.
Women and children are more likely to experience sexual violence and harassment.

Contemporary rates are disturbing: 1 in 5 Australian women have experienced sexual violence and more than half have experienced sexual harassment since age 15.4 1 in 20 men have experienced sexual violence and 1 in 4 have experienced sexual harassment since the age of 15.

5 1 in 6 women and 1 in 9 men have been physically or sexually abused before the age of 15.6 8.
While gender inequality is a significant driver of both family and sexual violence, they are distinct forms of violence – each requiring specialist responses.

General education about respectful relationships may not sufficiently target sexual wellbeing nor sexual violence prevention.

Sexual violence is a distinctive problem that demands a specialist and targeted response in order to address its impacts and to prevent its occurrence.

1 ANROWS, ‘Are we there yet?


Australians’ attitudes towards violence against women and gender equality’, 2017 NCAS Summary Report: https://www.anrows.org.au/NCAS/2017/for-stakeholders/ 2 Cameron Boyd, ‘The impacts of sexual assault on women’, ACSSA Resource Sheet 2, April 2011.

3 Taylor et.

al.

‘Sexual trauma in women: The importance of identifying a history of sexual violence.'

(2012) 41 (7) Australian Family Practitioner, 538-41.
4 Australian Institute of Health and Welfare ‘Family, domestic and sexual violence in Australia: continuing the national story’ 2019; P. Cox, ‘Violence against women in Australia: Additional analysis of the Australian Bureau of Statistics’ Personal Safety Survey, 2012’ (2015).

5 Australian Bureau of Statistics, Personal Safety Survey 2016; Australian Institute of Health and Welfare ‘Family, domestic and sexual violence in Australia: continuing the national story’ 2019.
6 Australian Institute of Health and Welfare, ‘Family, domestic and sexual violence in Australia: continuing the national story’ (2019), vii.

3 Inquiry into family, domestic and sexual violenceSubmission 34 Comprehensive Relationships and Sex Education as sexual violence prevention 9.

Universal access to comprehensive Relationships and Sex Education (‘RSE’) is a proven measure for safeguarding sexual wellbeing and preventing sexual violence.7 10.
Access to accurate information for sexual wellbeing and health is recognised as a right,8 and comprehensive Relationships and Sex Education is a critical vehicle to ensure that access to this right is realised.

11.

Relationships and Sex Education has been described as “…an effective life-course intervention that increases the health and wellbeing of children and young people.
It can enable them to expand their knowledge of sexual and reproductive health and rights, develop communication, decision-making and risk-reduction skills, and adopt positive and responsible attitudes to sexuality and relationships.”9 12.
Relationships and Sex Education has also been likened to a vaccine: “Just as a vaccine causes the body to produce an immunity to a disease by recognising it, the provision of safe and appropriate relationships and sex education can help young people recognise risky situations and equip them to respond safely.”10 13.
If it is accepted that Relationships and Sex Education is a necessary strategy for safeguarding sexual wellbeing and preventing sexual violence, it follows that an institutional response is required: 7 See, for example, Rebecka Lundgren and Avni Amin, ‘Addressing Intimate Partner Violence and Sexual Violence Among Adolescents: Emerging Evidence of Effectiveness’ (2015) 56 Journal of Adolescent Health 1; D. Apter ‘Recent developments and consequences of sexuality education in Finland’ BZgA Sexuality Education and Family Planning FORUM 2/2011: 3 – 8; H. M. van Keulen et al., ‘Effectiveness of the Long Live Love 4 program for 13- and 14-year-old secondary school students in the Netherlands: a quasi-experimental design’ (2015, Delf, Netherlands Organisation for Applied Scientific Research).
8 World Association for Sexual Health ‘Declaration of Sexual Rights’; Heidrun Thaiss (Director of BZgA), ‘Sexuality Education: Lessons Learned and Future Developments in the WHO European Region’ Conference Report, Berlin 15-16 May 2017, 13; Dr Alex McKay, Sex Information and Education Council of Canada: Katrina Marson Ignorance is not Innocence: Safeguarding Sexual Wellbeing through Relationships and Sex Education, Churchill Fellowship Report 2019, 10.
9 ‘Sexuality Education: Lessons Learned and Future Developments in the WHO European Region’ Conference Report, Berlin 15-16 May 2017, 4.

10 Lynnette Smith, Big Talk Education UK, Katrina Marson Ignorance is not Innocence: Safeguarding Sexual Wellbeing through Relationships and Sex Education, Churchill Fellowship Report 2019, 32.
4 Inquiry into family, domestic and sexual violenceSubmission 34 Sexual health is a…major determining factor in the wellbeing of individuals, partners, families and communities…[and] has important social and economic implications…Therefore the development and implementation of comprehensive sexual health education aimed at enhancing sexual health and wellbeing and preventing outcomes that negatively impact sexual health should be a public policy priority [emphasis added].11 Prevention lessons from international experience 14.
As noted above, this submission is based largely on the author’s Churchill Fellowship research, which draws from international experience in the design and implementation of Relationships and Sex Education as a measure for safeguarding sexual wellbeing and preventing sexual violence.

15.

The research was conducted in the following jurisdictions: Ireland, the United Kingdom, Germany, the Netherlands and Canada (the ‘subject jurisdictions’).

16.
16.

A cross-section of individuals, organisations and jurisdictions that had enjoyed success in Relationships and Sex Education design and/or implementation were identified.

Key stakeholders were sought out, including academics, politicians, public servants, private providers of RSE, internationally renowned organisations/initiatives and practitioners.12 17.

The research took a qualitative approach, using case studies to identify trends, insights and practical experience.
The primary research method was conducting semi-structured interviews with individuals and reviewing resources and materials.

Some direct observation of Relationships and Sex Education delivery in both primary and secondary schools was undertaken, as well as participation in discussions with teachers and parents.

18.

The international lessons arising from the research can be divided into three categories: i. ii.
Principles for Relationships and Sex Education design and delivery; Implementation success factors; iii.

Risks to implementation and mitigation strategies.

11 Sex Information and Education Council of Canada, Canadian Guidelines for Sexual Health Education (2019, Toronto) 11.

12 For a full list see Marson, above n. 8, 16 – 21.
5 Inquiry into family, domestic and sexual violenceSubmission 34 (a) Principles for Relationships and Sex Education design and delivery 19. International research recognises core principles of comprehensive Relationships and Sex Education – it must: i. ii.

iii.

iv.

v. vi.
iii.

iv.

v. vi.

Be based on a human rights approach; Be adapted for age and developmental stage and spread out over several years of education; Use a holistic concept of wellbeing (including health); Stress gender equality, the right to self-determination and acceptance of diversity; Promote a positive approach to human sexuality; Provide scientifically accurate information; vii.

Aim to increase knowledge, develop values and norms and build behavioural skills.13 20.
These principles were observable in the author’s experience of Relationships and Sex Education delivery across the jurisdictions visited.

Consistently across those jurisdictions the following design features were present or endorsed as contributing to efficacy: i.

Multiple sites of intervention: Relationships and Sex Education cannot be limited to individual lessons or school programs, it must extend to whole schools, families and communities.
While the school must be the chief site of intervention (because most young people can be reached there and RSE delivery can be regulated), other sites can be utilised such as youth groups, sports clubs, online forums, social media campaigns, television shows, magazines and books.

ii.

Holistic content: matters of consent, respect and relationships cannot be separated from puberty, sex, bodies and families: to address these matters in isolation is ineffective.
Relationships and Sex Education must cover topics of: i. Reproduction and families ii.

Expressing boundaries/consent iii.

Social/emotional development (friendships/relationships) iv.

Bodies (including puberty) iii.

iv.

Relationships and Sex Education must focus on improving knowledge, developing attitudes and building behavioural skills.
Age-appropriate, repeated and consistent: Relationships and Sex Education must be age-appropriate and initiatives should adopt a ‘spiral curriculum’ approach, progressively building on prior learnings.
Start in early childhood: it is important that children be exposed to Relationships and Sex Education from a young age, in order to promote and protect wellbeing as early as possible: 13 Evert Ketting and Olena Ivanova, ‘Sexuality Education: Lessons Learned and Future Developments in the WHO European Region’ Conference Report, Berlin 15-16 May 2017, 32.

See also, Sex Information and Education Council of Canada, Canadian Guidelines for Sexual Health Education (2019, Toronto).
6 Inquiry into family, domestic and sexual violenceSubmission 34 Because most [children] possess much more knowledge about sexuality than they need for their own personal psychosexual development, the task of sex education in the school is to sort out the impressions they have received, to set the record straight about certain matters, and to impart to them that some sexual subjects simply belong to adult sexuality.
[Young people] need help in orienting themselves in the jungle of sexual messages present in the media around them.14 v. vi.

vii.

viii.

The later it is left to try and ‘set the record straight’, the more difficult it will be to shift deeply held attitudes and values.
Normalise a positive approach to sexuality and wellbeing: reducing shame and taboo around Relationships and Sex Education topics promotes the entitlement to wellbeing and increases the likelihood that young people will learn to communicate appropriately and openly about such matters over the course of their lives.

Promote diversity and inclusivity: lessons, materials and resources should represent the lived experience of everyone.
Be modified appropriately for particular groups: while all Relationships and Sex Education should be relevant to the widest range of participants, particular groups will require important modifications in order to better meet their needs and ensure learning takes place – for example, students with educational needs or disability.
Incorporate evaluation and protection mechanisms: measuring performance of Relationships and Sex Education initiatives is important, as is the need to ensure protections are in place to support the safety of participants.

14 ‘Sexuality Education: Lessons Learned and Future Developments in the WHO European Region’ Conference Report, Berlin 15-16 May 2017, 38.
7 Inquiry into family, domestic and sexual violenceSubmission 34 Recommendations for Relationships and Sex Education design and delivery 1.1 Core principles for Relationships and Sex Education must be developed by relevant experts, informed by evidence and international experience.
1.2 Relationships and Sex Education initiatives must have the following features: • A multi-site intervention approach; o For example, beyond schools and families, consideration should be given to the use of youth groups, sports clubs, online platforms, television, social media and public campaigns to deliver Relationships and Sex Education.
• Holistic and age-appropriate lessons and activities, which aim to increase knowledge, develop values and build behavioural skills, covering the four themes of: o Reproduction and families; o Expressing boundaries/consent; o Social/emotional development; o Bodies and puberty.
Repetition and consistency; Commencement in early childhood; Aim to normalise a positive approach to sexuality and include scientifically accurate information; Promote diversity and inclusivity; • • Modifications for particular groups in consultation or driven by relevant experts or • • • members of those groups; Evaluation and protection mechanisms.

• 8 Inquiry into family, domestic and sexual violenceSubmission 34 (b) Implementation success factors 21.
Despite the weight of evidence in favour of comprehensive Relationships and Sex Education and established best practice for appropriate content and modes of delivery, a consistent frustration is the struggle to bring comprehensive RSE to life.

As was put by one of the author’s interviewees in Ireland: ‘If you know this protects people, why are you not jumping to act now?’ 15 22.
This is so in Australian jurisdictions also, where implementation of Relationships and Sex Education has historically been inconsistent at best.

16 23.
Endeavouring to uncover the secret to successful Relationships and Sex Education implementation, the author’s research found several consistent factors present in each of the subject jurisdictions: (i) (ii) (iii) (iv) (v) Advocate: advocacy, lobbyism and pioneering in Relationships and Sex Education; Commit: structural support for comprehensive Relationships and Sex Education from government and public institutions; Recognise: recognising Relationships and Sex Education as a specialist field, prioritising evidence and expertise; Equip: effectively equipping the school site for Relationships and Sex Education delivery, with adequate training and support for educators; Engage: inclusion and engagement of parents and caregivers about Relationships and Sex Education delivery; (vi) Evaluate: evaluation and accountability.
24.

These factors effectively constitute a six-point plan for governments and communities intending to implement Relationships and Sex Education as a measure to safeguard sexual wellbeing and prevent sexual violence.

15 Breanna Coyle, Irish Family Planning Association: Marson, above n. 8., 49.

16 Lauren Roberts, ‘Push to introduce mandatory, unified sexual consent lessons in Australian schools’, Australian Broadcasting Corporation, 29 February 2020.
9 Inquiry into family, domestic and sexual violenceSubmission 34 (I) ADVOCATE: ADVOCACY AND LOBBYISM 25.

Persistent advocacy and lobbyism in the pursuit of comprehensive Relationships and Sex Education in the subject jurisdictions had often generated enough political will to result in government or institutional support.

26.
26.

In Germany it was suggested that non-government sectors could be strengthened as “a representation of the citizens as rights holders, to demand government play their role as duty holders.”17 Collaboration by frontline services can also be politically significant, giving those with practical experience and frontline knowledge the capacity to advocate to government.

27.
27.

In Australia advocacy for comprehensive Relationships and Sex Education has been ongoing for decades,18 but the political will to commit to it has been lacking.

This inquiry, along with recent recommendations for preventative education measures made by various Commissions,19 hopefully demonstrate an increasing recognition of the need for RSE.

17 Christiane Erkens and Laura Brockschmidt: Marson, above n. 8, 51.
18 See, for example, Moira Carmody and Kerry Carrington, ‘Preventing Sexual Violence?’ (2000) 33 (3) The Australian and New Zealand Journal of Criminology; Moira Carmody, ‘Preventing Adult Sexual Violence Through Education?’ (2006) 18 (2) Current Issues in Criminal Justice 342; Anastasia Powell, ‘Sexual Pressure and Young People’s Negotiation of Consent’ (2007) 14 Australian Centre for the Study of Sexual Assault Newsletter 1.

19 HRC Sexual Harassment Report, NSWLRC, CARC and FV RC, ACT JACS Inquiry.
10 Inquiry into family, domestic and sexual violenceSubmission 34 (II) COMMIT: STRUCTURAL SUPPORT FROM GOVERNMENT & PUBLIC INSTITUTIONS 28.

Recognition of the need for Relationships and Sex Education by governments and public institutions is crucial, but it will be empty if not supported by the deployment of resources to ensure implementation occurs: “You always need national government to drive sexuality education and sexualised violence prevention.
If you try and use bottom-up strategies to drive it, you will never be successful.”20 29.

In each of the subject jurisdictions, some form of representative political commitment provided a mandate for the implementation of Relationships and Sex Education.

30.

Most commonly, legislation was cited as a useful driver for implementation, representing a strong signal from government as to the importance of Relationships and Sex Education and/or providing the impetus for implementation.
For example, legislative mandates were relied on in Germany, the Netherlands and the United Kingdom to ensure all young people had access to RSE.

31.

However, of critical importance in each of the subject jurisdictions was government follow- through.

The unmatched capacity of the state to drive policy initiatives and mobilise executive resources to ensure implementation outcomes can be used to great effect.

32.
32.

That is, governments must provide not just the mandate but the means for implementation of Relationships and Sex Education.

Germany and the Netherlands provide instructive examples.

33.

In both countries, governments prioritised a public policy of Relationships and Sex Education for safeguarding sexual wellbeing and sexual violence prevention, funding the development of expert-led and evidence-based RSE programs, curricula and resources.

34.
34.

In Germany, this was done through the establishment of a specialist branch within the Federal Centre for Health Education (the Bundeszentrale für gesundheitliche Aufklärung (BZgA)), who then assisted the state-based Education Departments to roll out the Relationships and Sex Education programs in schools.

This branch also provided training for teachers, and assistance in engaging parents and caregivers at an early stage.

35.
35.

The Netherlands took a similar approach, but funded an appropriate non-government organisation (Rutgers) to develop the content, and assist municipal public health departments to roll it out in schools.

They too assisted in training teachers and engaging parents and caregivers.

36.

In both countries, evaluation and accountability mechanisms were used to provide some quality assurance and demonstrate success of the Relationships and Sex Education policies and programs.
Key to their models was a multi-sector approach, incorporating health, education and community sectors, as well as the home.

This is important because “…inadequate cooperation between responsible governmental authorities [is] a strong [obstacle] to effective sexuality education.”21 20 Christiane Erkens: Marson, above n. 8, 59.

21 ‘Sexuality Education: Lessons Learned and Future Developments in the WHO European Region’ Conference Report, Berlin 15-16 May 2017, 80.
11 Inquiry into family, domestic and sexual violenceSubmission 34 (III) RECOGNISE: RECOGNITION OF RELATIONSHIPS AND SEX EDUCATION AS A SPECIALIST FIELD 37.

Relationships and Sex Education has been the subject of a wealth of research and academic literature.

In the subject jurisdictions, RSE was always recognised as a specialist field – whether by national or local government, or even within individual schools.

38.
38.

This recognition tends to go hand in hand with a public policy approach to Relationships and Sex Education – that is, by lending institutional support there is an implicit recognition that RSE is not a subject matter that will be learned by osmosis in the passage of time, nor be left to the whim of the private/domestic realm.

39.
39.

A corollary of recognising Relationships and Sex Education as a specialist field is that evidence and expertise will necessarily inform the design of RSE content, as well as modes of delivery.
If RSE is not best practice, evidence-based and expert-informed, at best it will be ineffective, and at worst counterproductive: “Sexuality education is sensitive and complicated…it is a powerful tool if administered professionally, but it can also cause harm and distort values if applied unprofessionally and with poor quality.”22 40.
The need for qualified practitioners, as well as curricula, programs or campaigns which have been developed by experts and based on research and evidence, was emphasised as paramount in each of the subject jurisdictions.

41.
41.

Furthermore, acknowledging Relationships and Sex Education as a specialist field tends to mitigate against it being treated as a low-priority subject within schools, which may in turn render it less effective and result in poor evaluation outcomes, which in turn provide weak justification for the continued implementation of RSE.

42.
42.

It is noted that there is a need for further specialisation and modification of Relationships and Sex Education for particular groups, as referred to above under Principles for Relationships and Sex Education design and delivery.

22 Dr Gunta Lazdane on behalf of Dr Zsuzsanna Jakab (WHO Regional Director for Europe) ‘Sexuality Education: Lessons Learned and Future Developments in the WHO European Region’ Conference Report, Berlin 15-16 May 2017, 16-17.
12 Inquiry into family, domestic and sexual violenceSubmission 34 (IV) EQUIP: SCHOOLS, TEACHERS & EDUCATION PROFESSIONALS 43.

Although the school cannot be the sole site for intervention and Relationships and Sex Education delivery, it is a crucial one for several reasons: i. ii.

iii.

iv.

It is the site in which the maximum number of children and young people in a community can be accessed.
A structured institution and subject to regulation, in theory the school environment allows for greater consistency, monitoring and evaluation of content and modes of delivery.

Repetition and consistency can be better achieved through this existing framework than through temporary or one-off exposure via other sites.

It is far easier to reach teachers, education professionals and other practitioners as part of a regulated workforce, to ensure adequate training occurs.

44.
44.

Accordingly, successful Relationships and Sex Education implementation requires schools to be adequately equipped for RSE delivery.

This includes not just the provision of quality RSE programs, curricula and materials, but school policies and teacher training as well.

45.
45.

Whole school approaches were endorsed in each subject jurisdiction, to ensure any Relationships and Sex Education lessons are reinforced by a complementary, respectful culture: “unless the lived curriculum is congruent with the taught curriculum, you won’t see change.”23 46.

In many of the subject jurisdictions, Relationships and Sex Education implementation included the review or introduction of a whole school approach, including policies.
For example, in Lincolnshire UK the author observed some practitioners work with schools to conduct full RSE audits and then develop RSE action plans – those audits review leadership and policy, budget, parental engagement, curriculum, and transition from primary to secondary schools.24 47.

The issue of adequately equipping schools inevitably gives rise to the debate about whether Relationships and Sex Education should be delivered by internal teachers or external providers.
Arguments in favour of internal delivery include: i. ii.

iii.

iv.
v. It normalises the subject matter if young people see the adults in their everyday life talk about it, rather than something unusual or special that someone external parachutes in to discuss; School staff are more attuned to particular needs of individual students, whether cognitive or environmental, and can tailor Relationships and Sex Education delivery to those needs; Internal delivery can better reflect the different demographics in different schools; Frequent repetition and consistency are more easily achieved; Depending on the model, internal delivery may not carry additional resourcing demand because it is absorbed by existing resources.
23 Alice Cruttwell, Shropshire UK: Marson, above n. 8, 82.

24 Marson, above n. 8, 82.

13 Inquiry into family, domestic and sexual violenceSubmission 34 48.

Arguments in favour of external providers include: i. ii.

iii.

iv.

v. vi.

vii.

It is possible (e.g.
through regulation) to ensure a higher level of expertise in the practitioners delivering the content than can be expected of classroom teachers without Relationships and Sex Education expertise – this is more closely aligned with the success factor of recognising of RSE as a specialist field also; Specialist agencies can be more flexible by adapting content to address topical issues and, because of their expertise, can be better equipped to respond to questions or sensitivities that arise compared to non-specialist classroom teachers, because the expertise comes through the practitioners rather than merely in the curriculum; The demonstrated attitudes and values of those delivering the subject matter is critical, and quality control of those elements is more easily attained in a specialist agency: “even a well-meaning teacher is very likely to end up giving abstinence messaging because it is difficult to get over the cultural taboo of talking about sex.”25 Students can experience embarrassment or discomfort in being taught this subject matter by their classroom teacher (although if normalising the subject matter occurs early, this may be less likely); External agencies can do context-specific preparation by working with schools to understand any sensitivities or particular needs of individual students or the broader school group; External agencies are less likely to be affected by prejudgments of particular groups of students or individuals, which in turn can affect lesson delivery; Increased transparency accompanies external agency delivery, including in relation to disclosures made (noting that transparency may be particularly desirable for certain institutions such as Catholic schools, following the child sexual abuse revelations); viii.
Teaching staff can still be integrated by being present during lesson delivery and trained appropriately to maintain the whole school approach and complimentary culture; ix.

Not all teachers feel comfortable delivering this subject matter, particularly if they have a personal history of sexual violence or abuse.

49.
49.

In some of the subject jurisdictions, including the United Kingdom and Germany, a hybrid approach was endorsed; that is, a model where Relationships and Sex Education is delivered by teachers but supported by specialists with particular training in RSE.

50.

Whichever model (of internal versus external providers) is adopted, teacher training remains vital to the success of Relationships and Sex Education.

51.
51.

Teacher training can assist in achieving cultural consistency across schools, and will better equip teachers to address questions and issues arising in the Relationships and Sex Education subject matter.

This is particularly important to the whole school approach.

25 Alex McKay (Toronto, Canada): Marson, above n. 8, 86.

14 Inquiry into family, domestic and sexual violenceSubmission 34 52.

Robust teacher training was observed in each of the subject jurisdictions.

53.
53.

Incorporating Relationships and Sex Education training within teaching qualifications was endorsed in each of the subject jurisdictions.

Improving that training at qualification stage is one way the baseline skills and literacy in RSE (including in dealing with disclosures of sexual violence) can be attained by all teachers from the commencement of their teaching careers.

54.
54.

Beyond that baseline training, those teachers who are actually appointed to deliver Relationships and Sex Education must be even better equipped and supported by school leadership.

It is uncontroversial that teachers are more effective when they are content specialists,26 and ensuring this is so in the RSE subject matter is consistent with the approach taken in the subject jurisdictions such as Germany.

55.
55.

Knowledge deficit in teachers in this area was seen as a significant problem in the subject jurisdictions, with teachers providing personal rather than professional opinions.

Many of the author’s interviewees in the subject jurisdictions agreed the ‘train the trainer’ model can work in the Relationships and Sex Education discipline, which may be necessary for rural schools who face particular difficulties in securing RSE delivery from external agencies.27 56.
As well as training, teaching staff need to be supported by their school in their delivery of Relationships and Sex Education.

Teachers’ fear of parental backlash to their RSE lessons or discussions can be an obstacle, and so they must feel supported by school leadership in the face of such backlash or opposition.

A model that clearly communicates to parents the school approach to RSE, and even engages parents in the strategy, is key.

57.
57.

Teacher peer support groups for professionals to share information and strategy was a recommended approach in the United Kingdom.

26 See, for example, John Hattie Visible Learning: A synthesis of over 800 meta-analyses relating to achievement (2009, New York).

27 Jonna Cooley, ‘Rural Shouldn’t Mean Less Than’, United States National Sexual Health Conference, Marriott Hotel, Chicago, 11 July 2019.
15 Inquiry into family, domestic and sexual violenceSubmission 34 (V) ENGAGE: ENGAGING PARENTS & CAREGIVERS 58.

Engaging parents and caregivers in Relationships and Sex Education strategy and delivery was a clear priority in each subject jurisdiction.

There are two key reasons for this: i. ii.


The engagement of parents and caregivers aligns with the multi-site intervention approach, endeavouring to ensure RS lessons are reinforced at home; Parents and caregivers can present one of the most significant risks to implementation success, and early meaningful engagement significantly mitigates that risk.

59.
59.

Parental influence is the biggest contributing factor to children and young people achieving educational outcomes,28 ahead of teachers and the school institution.

Therefore, even though the school should be the chief intervention site for Relationships and Sex Education for the reasons outlined above, achieving parental buy-in must be a key element of RSE implementation strategy to harness that influence.

60.
60.

Research shows parents are often the first port of call for young people when it comes to Relationships and Sex Education subject matter.

29 To this end, much like the need to equip all teachers with baseline skill and literacy in RSE, RSE-supportive attitudes, improved literacy and increased comfort level in discussing the subject matter must be promoted for adults in the home as well.
For example, this may be done through the provision of resources and/or lessons for parents about how to talk to their children regarding sexual health and relationships.

61.

Within schools, engaging parents and caregivers early in the process of implementing Relationships and Sex Education promotes transparency, properly preparing them for the content, mode and schedule of their child’s education.

Many of the RSE strategies observed in the subject jurisdictions did this effectively.

62.
62.

The right of parents and caregivers to withdraw children from Relationships and Sex Education lessons was protected in most of the subject jurisdictions, even those where there was a legislative mandate requiring RSE.

Justifications cited for retaining this right include: i. ii.

iii.
iii.

the right of parents and caregivers to retain some authority over their child’s education; a ‘catch more flies with honey than vinegar’ strategy – that is, parents are likely to be assuaged knowing the option to withdraw is open to them; and – overwhelmingly – the need to empower parents and caregivers to better appreciate the importance of RSE and reinforce lessons in the home.

63.
63.

Retaining the right to withdraw may prevent individual parental opposition from escalating into discontinuation of Relationships and Sex Education initiatives.

In some circumstances, parents and caregivers who initially exercise the right may ultimately capitulate because every other child is participating and/or once they understand the nature of and need for the RSE lessons.

This was reported in many of the subject jurisdictions.
However, in Hamburg, Germany, parents do not have the right to exempt their children from RSE, with a number of court decisions supporting this policy (indicating that resistance to RSE has been legally tested).
28 John Hattie, ‘Teachers make a difference, what is the research evidence?’ Paper presented at the Building Teacher Quality: What does the research tell us ACER Research Conference, Melbourne, Australia, October 2003: http://research.acer.edu.au/research_conference_2003/4/ 29 BZgA, ‘Youth Sexuality: Repeat Survey, the outlook for 14 – 25-year-olds’ (2015) 32.
16 Inquiry into family, domestic and sexual violenceSubmission 34 (VI) EVALUATE: EVALUATION & ACCOUNTABILITY “Prevention is always extremely difficult to prove – you’re measuring the absence of something in the hope you caused that absence.”30 64.

Evaluation mechanisms were a priority in each subject jurisdiction.

These methods included evaluation of individual Relationships and Sex Education lessons; overall programs/initiatives/curricula; or indeed evaluation of implementation success itself.

65.
65.

Evaluation of individual Relationships and Sex Education lessons and/or overall initiatives is critical because it helps to ensure initiatives are credible, best practice and promotes continuous improvement.

This is relevant to the implementation question because measuring the efficacy of a RSE initiative in achieving its aim can in turn justify (or not) ongoing implementation.
66. in order to ensure implementation success, it is also important to evaluate implementation itself; that is, is Relationships and Sex Education being implemented at all?

Is it being implemented according to any relevant standards that have been set (such as content covered, modes of delivery, frequency of delivery)?

For example, the 2018 BZgA and IPPF EN state of sexuality education research reviewed RSE implementation in 24 countries of the WHO European Region.
The 2015 Youth Sexuality Repeat Survey undertaken by BZgA also evaluated implementation success at a domestic level, measuring how many young people had access to sex-education classes and what those classes covered.31 67.

Evaluation and accountability are also contributing factors to successful implementation in part due to the close relationship they bear with every other success factor analysed above.
For example, where there is strong advocacy for Relationships and Sex Education implementation in a jurisdiction, those voices can act as an accountability mechanism by continuing to agitate the issue, to advocate for its continued implementation and for improvement of existing initiatives.32 68.
The use of awards and endorsements where programs are shown to be achieving design success and/or implementation success, for example, can also operate as a form of accountability; for example, in the UK Relationships and Sex Education programs can receive awards and endorsements of peak bodies such as the SEF and PSHE Association.
In the Netherlands, the ‘Healthy School’ initiative provides accreditation to schools for their performance against health and wellbeing indicators and is highly sought-after by schools.33 69.

Where there is government support, particularly in circumstances where there is a legislative or other institutional mandate, evaluation can act as an accountability measure because it can be employed to ensure the mandate is being executed and to rectify if it is not.
For example, following the legislative reform mandating Relationships and Sex Education, the UK has incorporated an accountability measure into their existing school inspectorate framework specifically to measure implementation of RSE.

30 Christiane Erkens, Germany: Marson, above n. 8, 99.

31 BZgA, ‘Youth Sexuality: Repeat Survey, the outlook for 14 – 25-year-olds’ (2015) 32 and 34.
32 For example, the UK Sex Education Forum continues to advocate for improvement of the legislation, and as to how implementation should occur (Westminster Education Forum).

33 Robert van der Gaag, the Netherlands: Marson, above n. 8, 99.
17 Inquiry into family, domestic and sexual violenceSubmission 34 Recommendations for Relationships and Sex Education implementation 2.1.1 Lobby groups consisting of key stakeholders and dedicated to the pursuit of comprehensive Relationships and Sex Education in schools be formed, either at the national or local level; 2.1.2 Where appropriate, existing Relationships and Sex Education initiatives should feed into policy and implementation strategy development.
2.2 Governments must: 2.2.1 Conduct formal reviews into existing Relationships and Sex Education policies, programs, curricula and other initiatives within their jurisdiction; 2.2.2 Make public declarations recognising the importance of access to comprehensive Relationships and Sex Education and should make commitments to action in RSE implementation; 2.2.3 Form or rely on existing advisory groups to inform policy and implementation strategy; 2.2.4 Enshrine the right of young people to access Relationships and Sex Education, for example in 2.2.5 Human Rights legislation where it exists; Introduce legislation requiring primary and secondary schools to deliver Relationships and Sex Education, with sufficient specificity to ensure some of the key features of program design are mandated; 2.2.6 Create or fund existing entities, including government departments, to conduct research and develop evidence-based curricula, programs and/or resources in consultation with and informed by relevant experts and advisory groups.
2.3.1 Governments must recognise Relationships and Sex Education as a specialist field and ensure 2.3.2 2.3.3 evidence and expertise informs policy, RSE design and implementation strategy; Schools must recognise Relationships and Sex Education as a specialist field and assign it appropriate status and priority within the school curriculum and staffing structure, for example by creating RSE departments and requiring staff to demonstrate interest, ability and capacity to join the department; Specialist policies, Relationships and Sex Education design and implementation strategies must be developed specifically for population groups with particular needs, by or in consultation with experts or members of those groups.
2.4.1 The school be positioned as the chief site for Relationships and Sex Education implementation.

2.4.2 Relationships and Sex Education audits be conducted within schools and whole school policies be adopted.

2.4.3 Tertiary qualifications for teaching and education must include Relationships and Sex Education training (including disclosure training) to ensure education professionals attain baseline skills in RSE.
2.4.4 Relationships and Sex Education lessons, programs, teaching packages and initiatives be developed by experts and integrated into the school curriculum.

2.4.5 Where Relationships and Sex Education is to be delivered by external agencies, policies must be in place to ensure those external agencies are: • • • Appropriately qualified and expert to deliver RSE; Aware of any sensitivities or particular needs of the school, class or individuals; Able to ensure repetition and consistency is achieved.
18 Inquiry into family, domestic and sexual violenceSubmission 34 2.4.6 Where teaching staff are to deliver Relationships and Sex Education, they must undertake additional comprehensive training with appropriate experts, such as those who have designed the relevant RSE program, teaching package or initiative.

Schools provide appropriate support to teaching staff, particularly when fielding complaints from community members or parents.
2.4.7 2.5.1 Implementation strategies and school policies must include methods for engaging parents, including the provision of information about what will be taught and modes of delivery.

2.5.2 Governments should consider whether the right to withdraw should be retained.
2.5.3 Information be provided to communities and families regarding matters relevant to Relationships and Sex Education, including why children and young people should have access to it, as well as information to equip parents to address their children’s RSE needs within the home.

2.6.1 Evaluation methods be developed by appropriate experts, in consultation with those designing Relationships and Sex Education initiatives and advisory groups.
2.6.2 Evaluation of both Relationships and Sex Education design and implementation be conducted, at classroom, school, region and national levels.

2.6.3 Accountability mechanisms, such as school inspections or awards/endorsement programs be developed to ensure Relationships and Sex Education design is appropriate and implementation is effective.

19 Inquiry into family, domestic and sexual violenceSubmission 34 (c) Risks to implementation and mitigation strategies 70.
Risks to implementation may prevent Relationships and Sex Education from ever getting off the ground, or derail initiatives after they have commenced.

While an absence of any of the aforementioned success factors can jeopardise implementation, there were additional risks reported across each subject jurisdiction and they broadly fall into two categories: i. ii.

Resourcing; Opposition to Relationships and Sex Education i. Resourcing 71.
To state the obvious, in the absence of adequate financial and human resources, any or all of the six success factors will not be met, and implementation will fail.

72.

Resourcing sustainability is one reason the author’s interviewees in Germany advocated for Relationships and Sex Education and sexualised violence prevention funding to be the responsibility of government rather than civil society.
It was their view that if government provides funding sustainably, it does not matter if RSE development and delivery is the responsibility of government or non-government agencies.

This can be seen in the Dutch model, where Rutgers (a non-government agency) is funded by government to research, develop and help deliver RSE.

73.
73.

However, interviewees in the UK cautioned that even government-resourced Relationships and Sex Education initiatives are often short-term funded, and that success of a program does not necessarily save it because funding may follow the topic of the moment.

Particularly when RSE is delivered through schools, governments may defer the responsibility to buy in RSE initiatives to the individual schools.

74.
74.

That said, this risk of short-term funding is mitigated in a model such as the German one, where a government department dedicated to Relationships and Sex Education and sexual violence prevention has been adequately funded on an ongoing basis and is given the mandate to work with schools at an Education Department level.
The magnitude of achievements that BZgA’s Department Four has been able to achieve in the field of RSE, both domestically and internationally, is solely due to the government commitment to and resourcing of this work.

20 Inquiry into family, domestic and sexual violenceSubmission 34 ii.

Opposition to Relationships and Sex Education “Who and what are driving resistance?
Churches and religious groups, conservative and right-wing politicians and parties, as well as anti-choice activists were identified as the main drivers of active opposition to sexuality education, this being exacerbated in societies with strong patriarchal traditions.

However, passive resistance by schools was also highlighted, along with faith-based parents’ groups.
Teachers who feel uncomfortable with sexuality education issues, lack of understanding about their roles or fear external i nterventions into their teaching can be a hindrance to the implementation of sexuality education.”34 75.

Professionals across the subject jurisdictions cautioned that opposition has the potential to significantly impede the implementation of Relationships and Sex Education.
Opposition tends to be rooted in the belief that RSE generally, or specific content within it, should not be taught in schools, and/or in misinformation about what is being taught.

Often this is based on the fear that exposure to the subject matter will encourage young people to engage in sexual behaviour – a fear not justified by evidence.

76.
76.

Opposition to Relationships and Sex Education can come from a variety of sources, including at the political or community level, in schools and among parents and caregivers.

For example, the main conservative political party in Germany opposed RSE in schools on the basis that it would result in ‘Früsexualisierung’ – the early sexualisation of children.

77.
77.

In the Netherlands, the author was advised that “although the Netherlands as a nation is advanced in terms of the cultural understanding of the need for Relationships and Sex Education, in practice not everybody is on board because they are still confronted by the taboo and it is still quite fear based.” It was explained that there continue to be peaks and troughs of progressive versus conservative approaches to RSE in the Netherlands.

78.
78.

In Ontario, when a revision of the Relationships and Sex Education curriculum was first tabled in 2010, the former Premier was unprepared and following backlash from religious groups and the far-right, he withdrew the curriculum, deciding he could not withstand the pushback politically.

79.

Across the subject jurisdictions, the author was told of community members who were not necessarily parents or caregivers protesting Relationships and Sex Education.
Somewhat contrary to the observations extracted above, overwhelmingly interviewees highlighted the role of parents and caregivers as a source of opposition, whether at an individual school or broader community level.

80.

Examples of opposition illustrate how, in the Relationships and Sex Education context, matters of fact or information can become imbued with values and derailed on that basis.
For example, there was a former RSE program in the UK whose mention of the clitoris – an anatomical reality – was enough to see it discontinued in schools and revised in order to remove reference to the clitoris.

Similarly, a mere reference to homosexuality – even expressed as ‘when a man and a 34 ‘Sexuality Education: Lessons Learned and Future Developments in the WHO European Region’ Conference Report, Berlin 15 – 16 May 2017, 80.
21 Inquiry into family, domestic and sexual violenceSubmission 34 man, or a woman and a woman, grow up and love each other’ – was enough for many parents to object to RSE implementation or to exercise their right to withdraw their children from lessons.
The author observed this first-hand at a parents session in Sheffield UK, after which numerous parents indicated they would withdraw their children from lessons, expressing the belief that children would be encouraged to explore homosexuality after learning of its existence.

81.

Misinformation about Relationships and Sex Education content is a common cause for opposition, whether genuinely misunderstood or because of deliberate propaganda used to generate opposition.
For example, when the Wynne administration introduced revisions to the Ontario RSE curriculum in 2015, myths that that the new curriculum included lessons on how to masturbate and have anal sex circulated and stirred up vocal opposition, and several protests were held.

The next administration promised to remove the new curriculum, although they have not done so since being elected in late 2018.

82.

Opposition to Relationships and Sex Education can be highly charged, or even violent.
For example, in Germany, creators of the BZgA online resource portal had to remove their names in the credits on that site, because they had been receiving death threats.

Another BZgA staff member who had been presenting in a public forum about sex education had her photo taken and published by right-wing media, and was then used on flyers opposing RSE which were distributed in local businesses in one particular area.

Legal action had to be taken for the photo to be removed.

83.
83.

A group of parents and community members in Birmingham led protracted and high charged protests to a school’s anti-homophobia program (‘No Outsider’) in 2019, receiving widespread media coverage, and successfully derailing the program, with the school suspending its delivery indefinitely.

A similar protest was reported as having occurred in Amsterdam in 2019.

84.
84.

Accordingly, mitigation strategies are critical to insulate Relationships and Sex Education from the headwinds of apathy, ignorance and opposition.

Mitigation strategies “25% of a community aren’t going to have their hearts and minds changed – but if you educate and inform the plurality, their support could be powerful.” 35 85.

In light of the significant and familiar risk posed by opposition to Relationships and Sex Education, mitigation strategies were observed in each subject jurisdiction.

86.
86.

Some were high level, including strategies for ensuring structural support was maintained; others were directed at organisations and individuals, advocating for school leadership and administration to retain Relationships and Sex Education, and some general tactics for responding to concerned parent groups or individual parents.

Many of these strategies were endorsed at the 2017 Sexuality Education conference in Berlin: 35 Dr Alex McKay, Canada: Marson, above n. 8, 111.
22 Inquiry into family, domestic and sexual violenceSubmission 34 • National and international coalition-building and continuous building of alliances with governmental representatives and parliamentarians is important.

• Data as a fundamental element of evidence-based strategy development [is relevant] and research and evaluation promoted.

• Developing campaigns and education offers for parents and journalists can be effective, reinforced by high-profile celebrity endorsements and advocacy.
• Direct dialogue with liberal religious leaders can help gain support from religious groups.

• • Creating demand for sexuality education by empowering and involving young people themselves by means of peer educators is important.

International instruments and sharing of factual information and best practice examples across borders were above all considered powerful tools to counter opposition.36 87.
Retaining structural support is key, including through the kind of lobbyism and advocacy activities described herein.

Again, legislation can work to future-proof the provision of Relationships and Sex Education.

88.

‘Evidence-based resistance’ was also endorsed in the subject jurisdictions – which is where evaluation can assist if the results bear out the need for and efficacy of Relationships and Sex Education initiatives.
Different groups, governments and schools can combat misinformation with evidence.

89. International collaboration and the ability to information-share was relied on heavily in Germany, both in terms of research findings but also strategies to respond to opposition.

90.

There may be some strength in numbers, with awareness of neighbouring jurisdictions’ experience with Relationships and Sex Education implementation persuasive for governments.

91.
91.

Data collection to understand rates of support for Relationships and Sex Education among parents and communities is also useful to combat vocal opposition.

92.

Getting schools on board can assist to prevent or overcome opposition.

For example, the development of action plans anticipating sources of opposition and strategies to overcome that opposition was recommended at the United States National Sexual Health Conference 2019.

37 93.
37 93.

The power of word of mouth and reputation in convincing schools to bring on Relationships and Sex Education was cited in many subject jurisdictions.

94.

Managing parental/community opposition by building receptivity and empowering parents and communities is vital.

In part this can be achieved by parent sessions as described above, where facts, evidence and statistics (about, for example, rates of sexual abuse and the protective power of RSE) can be provided in direct conversations.

95.
95.

Some professionals in the subject jurisdictions appeal to parents’ desire to impart their values – empowering parents as allies, rather than making them feel as though they are failing.

36 ‘Sexuality Education: Lessons Learned and Future Developments in the WHO European Region’ Conference Report, Berlin 15 – 16 May 2017, 81.

37 Marson, above n. 8, 113.

23 Inquiry into family, domestic and sexual violenceSubmission 34 96.
Media attention can be a death knell for Relationships and Sex Education implementation, often sensationalising the nature and degree of opposition to RSE, or giving airtime to misinformation or propaganda about RSE content.

97.

However, a proactive and evidence-based approach to harnessing the media was a suggested strategy in the subject jurisdictions as a way to mitigate the risk of negative media attention.
For example, being explicit about Relationships and Sex Education curricula as well as parental consultation processes, and engaging young people themselves, was recommended by the former premier of Ontario.38 98.
That political also suggested that, by undertaking pre-emptive media briefings, politicians could frame the messaging to make clear that the conservative view is known to endanger young people by failing to provide them with information they need to protect themselves.39 Recommendations for mitigating risk to implementation 3.1 Governments adequately fund Relationships and Sex Education research, design and implementation on an ongoing basis.
3.2 Action plans anticipating the potential sources and nature of opposition to Relationships and Sex Education should be developed.

3.3 An evidence-based resistance approach be taken when responding to opposition to Relationships and Sex Education.

3.4 Pro-forma information sheets and responses to common criticisms of Relationships and Sex Education be developed.

3.5 Data about levels of community/parental support for Relationships and Sex Education be obtained.
3.6 Pre-emptive media briefings and campaigns specifying the need for Relationships and Sex Education, the nature and degree of consultation with parents, and the details of any RSE content and modes of delivery be undertaken.

3.7 International collaboration and information-sharing be prioritised.

38 Marson, above n. 8, 117.

39 Ibid.

24 Inquiry into family, domestic and sexual violenceSubmission 34 Conclusion 99.
Recognition of the right of all people to access information and education that they can use to make autonomous decisions underpins the argument in favour of comprehensive relationships and sex education.

Acknowledging that the foundations of self-determination and the ability to pursue or protect one’s own wellbeing do not manifest at the age of consent or adulthood means access to Relationships and Sex Education must start young.

100.
100.

The experience of relationships and sex education in Ireland, the United Kingdom, Germany, the Netherlands, Canada and the United States of America provides valuable international perspective and practical insights.

This submission has drawn from the author’s Churchill Fellowship report, which has recorded some of those insights, placing them in context of both the design and the implementation of Relationships and Sex Education.

101.
101.

This submission has endeavoured to outline an action plan for governments and communities committed to safeguarding sexual wellbeing and preventing sexual violence through the proven measure of comprehensive Relationships and Sex Education.

102.

It is imperative that the capacity for comprehensive relationships and sex education to empower and protect our youth is recognised and prioritised.
To mistake ignorance for innocence and to insist on covering the ears of our children and young people is to leave their wellbeing and safety to chance.

103.

RASARA recognises the right of all people to pursue sexual wellbeing and to live free from sexual violence and, acknowledging its power to achieve this, advocates for universal access to comprehensive Relationships and Sex Education.

25 Inquiry into family, domestic and sexual violenceSubmission 34