Source: http://clsadb.com/document/342749af-f331-4968-a303-ebdfaf0761c7
Timestamp: 2020-01-20 07:29:27
Document Index: 27497002

Matched Legal Cases: ['§1', '§2', '§1', '§3', '§4', '§1', '§2', '§2', '§1', '§2', '§1', 'art. 17', '§1']

Holy See, Responses concerning the Cloyne Report for the Diocese of Cloyne, Ireland, 3 September 2011.
Summary of the Response to Mr Eamon Gilmore, Tánaiste and Minister for Foreign Affairs and Trade of Ireland, concerning the Cloyne Report
- In his meeting with the Apostolic Nuncio, the Tánaiste and Minister for Foreign Affairs and Trade, Mr Eamon Gilmore, stated that “among the most disturbing of the findings of the Cloyne report is that the Vatican authorities undermined the Irish Church’s own efforts to deal with clerical child sexual abuse by describing the framework document adopted by the Bishops’ Conference as a mere ‘study document.’” As is made clear in the Holy See’s Response this description was based on the explanations of its nature as provided by the Irish Bishops and in the published text itself. In no way was it a dismissal of the serious efforts undertaken by the Irish Bishops to address the scourge of child sexual abuse.
- With regard to the motion passed in Dáil Éireann on 20 July 2011, and by Seanad Éireann a week later, deploring “the Vatican’s intervention which contributed to the undermining of the child protection framework and guidelines of the Irish State and the Irish Bishops” the Holy See wishes to clarify that at no stage did it make any comment about the Irish State’s child protection measures, let alone seek to undermine them. The Holy See observes that there is no evidence cited anywhere in the Cloyne Report to support the claim that its supposed “intervention” contributed to their “undermining.” As for those of the Irish Bishops, the Response offers sufficient clarifications to show that these were in no way undermined by any intervention of the Holy See.
In a spirit of humility, the Holy See, while rejecting unfounded accusations, welcomes all objective and helpful observations and suggestions to combat with determination the appalling crime of sexual abuse of minors. The Holy See wishes to state once again that it shares the deep concern and anxiety expressed by the Irish authorities, by Irish citizens in general and by the Bishops, priests, religious and lay faithful of Ireland with regard to the criminal and sinful acts of sexual abuse perpetrated by clergy and religious. It also recognizes the understandable anger, disappointment and sense of betrayal of those affected — particularly the victims and their families — by these vile and deplorable acts and by the way in which they were sometimes handled by Church authorities, and for all of this it wishes to reiterate its sorrow for what happened. It is confident that the measures which the Church has introduced in recent years at a universal level, as well as in Ireland, will prove more effective in preventing the recurrence of these acts and contribute to the healing of those who suffered abuse and to the restoration of mutual confidence and collaboration between Church and State authorities, which is essential for the effective combating of the scourge of abuse. Naturally, the Holy See is well aware that the painful situation to which the episodes of abuse have given rise cannot be resolved swiftly or easily, and that although much progress has been made, much remains to be done.
On 14 July 2011, following the publication of the Report of the Commission of Investigation into the Diocese of Cloyne (Cloyne Report), Mr Eamon Gilmore, Deputy Prime Minister (Tánaiste) and Minister for Foreign Affairs and Trade of Ireland, in the course of a meeting with the Apostolic Nuncio in Ireland, Archbishop Giuseppe Leanza, requested him to convey to the Holy See a copy of the Cloyne Report together with the Irish Government’s views on the matters raised, to which the Minister requested a Response.
Recognising the seriousness of the crimes detailed in the Report, which should never have happened within the Church of Jesus Christ, and wishing to respond to the Irish Government’s request, the Holy See, after carefully examining the Cloyne Report and considering the many issues raised, has sought to respond comprehensively.
This morning, 3 September 2011, Monsignor Ettore Balestrero, Under-Secretary for Relations with States, met with Ms. Helena Keleher, Chargé d’Affaires, a.I. of the Embassy of Ireland to the Holy See, and consigned to her the Holy See’s Response to the Irish Government.
Here following the full text is published. Also published is an Executive Summary of it. For a fuller appreciation and understanding of the comprehensive information supplied by the Response, the reader is invited to read it in its entirety.
Holy See, Summary of the Response to Mr Eamon Gilmore, Tánaiste and Minister for Foreign Affairs and Trade of Ireland, concerning the Cloyne Report, 3 September 2011. Accessed 7 January 2020 at: http://www.vatican.va/resources/resources_sintesi-risposta-gilmore_20110903_en.html, and Communiqué accessed at: http://www.vatican.va/resources/resources_comunicato-risposta-gilmore_20110903_en.html
Holy See, Response to Mr Eamon Gilmore, Tánaiste and Minister for Foreign Affairs and Trade of Ireland, concerning the Cloyne Report, 3 September 2011.
In his speaking points, a copy of which he gave to the Nuncio, the Minister stated: “among the most disturbing of the findings of the Cloyne report is that the Vatican authorities undermined the Irish Church’s own efforts to deal with clerical child sexual abuse by describing the framework document adopted by the Bishops’ Conference as a mere ‘study document.’ The Commission have described this intervention by the Vatican as entirely unhelpful to any bishop which wanted to implement the procedures adopted by the Bishop’s conference and as unsupportive, especially in relation to report to the civil authorities. Frankly, it is unacceptable to the Irish Government that the Vatican intervened to effectively have priests believe they could in conscience evade their responsibilities under Irish law.”1 The Minister then requested him to convey to the Holy See a copy of the Report together with the Irish Government’s views on the matters raised, and asked for the Holy See’s response in the following terms: “I would ask you to convey this report and my Governments view’s to your authorities in the Vatican. I believe that a response is required and I look forward to receiving it.”
Subsequently, a motion on the Cloyne Report was passed in which, among other things, Dáil Éireann “deplores the Vatican’s intervention which contributed to the undermining of the child protection framework and guidelines of the Irish State and the Irish Bishops.” The same motion was passed by Seanad Éireann on 27 July 2011.
Having carefully examined the content of the Cloyne Report, the Holy See concludes that the criticisms and accusations made against it are based primarily on the Report’s assessment of the letter addressed to the members of the Irish Bishops’ Conference on 31 January 1997 by the then Apostolic Nuncio, Archbishop Luciano Storero, concerning the response of the Congregation for the Clergy to the 1996 document entitled Child Sexual Abuse: Framework for a Church Response, generally known as the Framework Document. This letter is quoted extensively in the earlier Dublin Report (7.13­­­–7.14) and was the object of considerable public attention in January 2011. The Holy See acknowledges, moreover, that, taken out of context, the letter could be open to misinterpretation, giving rise to understandable criticism. In what follows, an explanation of that context is offered, including, crucially, explanation of the knowledge that the letter presupposes of the workings of the Church and the relationship between episcopal conferences and the Holy See.
Before addressing the issues raised in connection with Archbishop Storero’s letter, it should also be noted that there is no suggestion in the Cloyne Report that the Cloyne diocesan authorities invoked the content of that letter to justify ignoring the Framework Document guidelines. In fact, according to Cloyne Report, Bishop John Magee declares that he accepted and sought to implement the guidelines (1.16, 1.19, 4.17­­­–4.20), while Monsignor Denis O’Callaghan made no secret of his disapproval of them (1.17, 1.20), preferring instead to implement what he described as a “pastoral approach” (4.78­­­–4.80). However, the Cloyne Report provides no evidence that he invoked the Congregation’s response in support of his views.
On the basis of the findings of the Cloyne Report, it would appear that Monsignor O’Callaghan, failed to apply not only the Framework Document, but also the existing norms of canon law (particularly canons 1717­­­–1719),2 despite their universal applicability and despite the Congregation’s observation that the procedures established by the Code of Canon Law were to be observed. The Cloyne Report states that the Diocese did not carry out proper canonical investigations; in the five cases where an investigation was ordered under canon 1717, the investigation was commenced but never completed (1.49­­­–1.50).
Subsequently, in a letter addressed to Archbishop Storero on 10 October 1996, the then Secretary of the Irish Bishops’ Conference, Bishop Michael Smith, in reference to the Framework Document confirmed that “The document was not promulgated by decree of the Episcopal Conference nor was it approved by the Conference. It was accepted by the Conference and offered to each individual Bishop and religious Superior as guidelines that could — and indeed should — be followed in dealing with allegations of child sexual abuse against priests and religious.” As the Cloyne Report acknowledges, “The understanding was that each diocese or religious institute would enact its own particular protocol for dealing with complaints” (4.16).
The Congregation’s description of the Framework Document as a “study document,” which was based on the explanations of its nature as provided by the Irish Bishops and in the published text itself, was not a dismissal of the serious efforts undertaken by the Irish Bishops to address the grave problem of child sexual abuse. The Congregation, taking cognizance of the Bishops’ intention not to make the document binding, while at the same time aware that each individual Bishop intended to adopt it for his Diocese to deal with cases as they arose, wished to ensure that nothing contained in it would give rise to difficulties should appeals be lodged to the Holy See.
From these considerations, the following conclusions may be drawn as to the nature of the Framework Document. On the one hand, it was an advisory document designed to provide a uniform code of practice for individual Bishops to improve child protection measures and procedures in their Dioceses, and was recommended to them as such. On the other hand, from a more strictly canonical viewpoint, it was not an official document of the Episcopal Conference but a report of the above­­­­-mentioned Advisory Committee, deserving of serious study and which could serve as a source for the development of a more formal legislative project.
The relevant norm is canon 455 of the Code of Canon Law which states: “§1. The Bishops’ Conference can make general decrees only in cases where the universal law has so prescribed, or by special mandate of the Apostolic See, either on its own initiative or at the request of the Conference itself. §2. For the decrees mentioned in §1 validly to be enacted at a plenary meeting, they must receive at least two-thirds of the votes of those who belong to the Conference with a deliberative vote. Those decrees do not oblige until they have been reviewed by the Apostolic See (nisi ab Apostolica Sede recognita) and lawfully promulgated. §3 The manner of promulgation and the time they come into force are determined by the Bishops’ Conference. §4. In cases where neither the universal law nor a special mandate of the Apostolic See gives the Bishops’ Conference the power mentioned in §1, the competence of each diocesan Bishop remains intact. In such cases, neither the Conference nor its president can act in the name of all the Bishops unless each and every Bishop has given his consent.”
While the Irish Bishops did engage in consultations with the Congregation for the Clergy about the contents of the Framework Document, the Irish Bishops’ Conference did not take the canonical vote required by canon 455 §2 and never sought the recognitio of the Holy See for it. While the Congregation for the Clergy may contribute to the discussion leading to the formulation of complementary legislation, it is the Congregation for Bishops which is the competent dicastery for granting the recognitio to general decrees of the Episcopal Conferences in its territory. Since the Irish Bishops did not choose to seek recognitio for the Framework Document, the Holy See cannot be criticized for failing to grant what was never requested in the first place.
As the Cloyne Report notes, the child protection guidelines of the Church in Ireland were revised and further improved in subsequent years, leading to the publication of Our Children, Our Church in 2005 and Safeguarding Children – Standards and Guidance Document for the Catholic Church in Ireland in 2009 (4.42­­­–4.62). Unfortunately, the introduction of new guidelines does not seem to have led to significant improvements in the Diocese of Cloyne until 2009.
With regard to canon law, it states: “In responding to complaints of child sexual abuse, Church authorities must also act in accordance with the requirements of the Code of Canon Law and must respect the rights and uphold the safeguards afforded in that Code both to those who complain of abuse and to those who are accused. The Church has its own inherent right to constrain with penal sanctions its members, including priests and religious, who commit offences. These penal sanctions are clearly indicated in the Code of Canon Law (cf. c. 1311ff)” (pp. [14]­­­–[15]).
While the Framework Document does recognize the need for compatibility with canon law, the Congregation for the Clergy — as Archbishop Storero’s letter explains — noted that the definitive text of the Framework Document contained procedures and dispositions which appeared contrary to canonical discipline. In pointing this out, the Congregation did not reject the Framework Document. Rather, it offered advice to the Bishops with a view to ensuring that the measures which they intended to apply would prove effective and unproblematic from a canonical perspective. For this reason, the Congregation drew attention to the requirement that these measures should be in harmony with canonical procedures in order to avoid conflicts that could give rise to successful appeals in Church tribunals. The Holy See, in recognising the great difficulties and complexities faced by the Bishops in confronting the disciplinary aspects of child sexual abuse, wanted to ensure that the application of the measures contained in the Framework Document would not undermine the Bishops’ efforts to discipline those guilty of child sexual abuse in the Church. As has been explained above (part b), the question of recognitio did not arise, nor was it necessary, given that all the Bishops and Religious Superiors in Ireland had agreed to accept and apply the guidelines of the Framework Document. The lack of recognitio did not in any way undermine the application of the Framework Document, especially in the context of the Holy See’s decision in 1996 to extend to Ireland special provisions already granted to the Bishops of the United States in 1994. (This matter will be presented in detail in Part Six of this Response).
The Holy See notes that in a statement in Dáil Éireann on 25 March 1997, the then Minister for Health, Mr Michael Noonan, explained why the Government of the day had decided not to introduce mandatory reporting. He recognized that all who participated in the relevant consultative process, including those who expressed reservations or were opposed to mandatory reporting, had the “best interests of children” as their “paramount concern.” Explaining the Government’s decision he stated: “However, it was suggested in a number of submissions that sight should not be lost of a person’s right to his or her good name in dealing with the reporting of child abuse and the Minister of State was conscious of the need to maintain an appropriate balance in developing the initiatives outlined.” Thus, the reservations expressed by the Congregation for the Clergy about mandatory reporting were in line with those expressed at the time by various professional groups and individuals in Ireland, including members of the Irish Government.
In particular, the accusation that the Holy See attempted “to frustrate an Inquiry in a sovereign, democratic republic as little as three years ago, not three decades ago,” which Mr Kenny made no attempt to substantiate, is unfounded. Indeed, when asked, a Government spokesperson clarified that Mr Kenny was not referring to any specific incident. In fact, accusations of interference by the Holy See are belied by the many Reports cited as the basis for such criticisms. Those Reports — lauded for their exhaustive investigation of sexual abuse and the way it was managed — contain no evidence to suggest that the Holy See meddled in the internal affairs of the Irish State or, for that matter, was involved in the day-to-day management of Irish dioceses or religious congregations with respect to sexual abuse issues. Indeed, what is impressive about these Reports, and the vast information that they rely upon, is that there is no support for these accusations.
The Cloyne Report itself contains no statement that would lend support to Mr Kenny’s accusations. In fact, when the Apostolic Nuncio in Ireland was asked by the Commission of Inquiry “to submit to it any information which you have about the matters under investigation,” the Commission received a reply to the effect that the Apostolic Nunciature “does not determine the handling of cases of sexual abuse in Ireland and therefore is unable to assist you in this matter. In fact, such cases are managed according to the responsibility of local ecclesiastical authorities, in this instance, the Diocese of Cloyne. Like all ecclesiastical entities in Ireland, the Diocese of Cloyne is bound to act in accordance with canon law and with all civil laws and regulations of Ireland as may be applicable” (2.11).
In his meeting with the Apostolic Nuncio, the Tánaiste and Minister for Foreign Affairs and Trade, Mr Eamon Gilmore, stated that “among the most disturbing of the findings of the Cloyne report is that the Vatican authorities undermined the Irish Church’s own efforts to deal with clerical child sexual abuse by describing the framework document adopted by the Bishops’ Conference as a mere ‘study document.’” As has been made clear above, this charge is not supported by an objective reading of the Cloyne Report nor by the fact that the common practice of the Irish Bishops was to apply the Framework Document. Furthermore, given that the Church has always insisted on the duty of all citizens to obey the just laws of the State (cf. Romans 13:1­­­–2; Catechism of the Catholic Church, Nos. 1897­­­–1904; 2238­­­–2243), the Holy See does not accept the charge that “the Vatican intervened to effectively have priests believe they could in conscience evade their responsibilities under Irish law.”
On 20 July 2011, the Dáil passed a motion on the Cloyne Report which, among other things, deplored “the Vatican’s intervention which contributed to the undermining of the child protection framework and guidelines of the Irish State and the Irish Bishops.” The same motion was passed by Seanad Éireann a week later. The Holy See wishes to clarify that at no stage in the past did it make any comment about the Irish State’s child protection framework and guidelines, let alone seek to undermine them. The Holy See further observes that there is no evidence cited anywhere to support the claim that its “intervention” contributed to their “undermining.” As for the child protection framework and guidelines of the Irish Bishops, the observations made above should suffice to dispel the notion that these were in any way undermined by any intervention of the Holy See.
In the Church, the Bishops are neither representatives nor delegates of the Roman Pontiff but of Christ (cf. Second Vatican Council, Dogmatic Constitution on the Church Lumen Gentium, No. 27), though, as Catholic Bishops, they are to act in communion with the Bishop of Rome and the other Bishops throughout the world; this is the principle of “episcopal collegiality,” as described by the Second Vatican Council (cf. ibid.), Nos. 21­­­–25). Hence, while the diocesan Bishop is to act in conformity with universal canonical legislation, it is he who is primarily responsible for penal discipline in his Diocese, just as he is responsible for the concrete actuation in his Diocese of the liturgical and sacramental life of the Church in conformity with the universal law governing liturgy and the sacraments (cf. ibid._, No. 27).
The 1983 Code updated the previous discipline in canon 1395 §2: “A cleric who in another way has committed an offence against the sixth commandment of the Decalogue, if the delict was committed by force or threats or publicly or with a minor below the age of sixteen years, is to be punished with just penalties, not excluding dismissal from the clerical state if the case so warrants.”
The 1983 Code provides that the diocesan Ordinary (the Bishop or equivalent) is responsible for judging cases in the first instance. Prior to 2001, when the competence for cases of child sexual abuse perpetrated by a cleric was transferred to the Congregation for the Doctrine of the Faith, appeals against judicial sentences could be presented to the Tribunal of the Roman Rota, while administrative recourses (i.e. legal review of administrative decisions) against penal decrees were to be presented to the Congregation for the Clergy. As the Cloyne Report states, during the period 1996­­­–2001, not a single case of child sexual abuse perpetrated by a cleric in the Diocese of Cloyne was referred to the competent authorities of the Roman Curia.
In order to provide more comprehensive norms and simplify some of the procedures, on 30 April 2001 Pope John Paul II promulgated the motu proprio “Sacramentorum Sanctitatis Tutela,” which included the sexual abuse of a minor under 18 by a cleric among the new list of canonical delicts reserved to the Congregation for the Doctrine of the Faith. As was the case in the earlier indults granted to the Bishops of the United States and Ireland, prescription for these cases was extended to ten years from the 18th birthday of the victim. All Catholic Bishops were informed of the new law and the new procedures. The acts that constitute the most grave delicts reserved to the Congregation were specified in this letter, both those against the moral law and those committed in the celebration of the Sacraments. Also listed were special procedural norms to be followed in cases concerning these grave delicts, including those norms regarding the determination and imposition of canonical sanctions. The procedures applicable to cases of child sexual abuse are noted by the Cloyne Report (4.23).
The new legislation proved notably effective in dealing with cases of child sexual abuse perpetrated by clerics. During the period 2001­­­–2010, the Congregation for the Doctrine of the Faith considered accusations against about three thousand diocesan and religious priests, referring to crimes committed over the previous fifty years. The Congregation provided for the respective Dioceses or Religious Orders to conduct penal processes, whether judicial or administrative, in a number of cases. In other cases, the penal process was not used, and instead administrative and disciplinary provisions were issued against the accused priests, including limitations on the celebration of Mass, prohibitions against the hearing of confessions and mandatory withdrawal into a retired life of prayer, with no public contact. In particularly serious cases, a decree of dismissal from the clerical state was issued. In some cases, the accused priests themselves requested dispensation from their clerical obligations.
With regard to delicts against the moral law, article 6 of these Norms stipulates: “§1. The more grave delicts against morals which are reserved to the Congregation for the Doctrine of the Faith are: 1° the delict against the sixth commandment of the Decalogue committed by a cleric with a minor below the age of eighteen years; in this case, a person who habitually lacks the use of reason is to be considered equivalent to a minor. 2° the acquisition, possession, or distribution by a cleric of pornographic images of minors under the age of fourteen, for purposes of sexual gratification, by whatever means or using whatever technology; §2. A cleric who commits the delicts mentioned above in §1 is to be punished according to the gravity of his crime, not excluding dismissal or deposition.” Furthermore, the preliminary investigation may be, but need not be, undertaken directly by the Congregation (art. 17) and, with due regard for the rights of the local Ordinary, the Congregation itself may take the precautionary measures provided for in canon 1722 of the Code of Canon Law during the preliminary investigation.
As the Cloyne Report was submitted to the Minister for Justice and Law Reform on 23 December 2010, it was not possible for it to include reference to the Circular Letter issued by the Congregation for the Doctrine of the Faith on 3 May 2011. This document is intended as a practical help to Episcopal Conferences worldwide in developing guidelines for dealing with cases of sexual abuse of minors perpetrated by clerics. The full text of the Circular Letter is available on the Holy See’s website (www.vatican.va).
- In the introductory paragraph the basic principles are stated: “Among the important responsibilities of the Diocesan Bishop in his task of assuring the common good of the faithful and, especially, the protection of children and of the young, is the duty he has to give an appropriate response to the cases of sexual abuse of minors by clerics in his diocese. Such a response entails the development of procedures suitable for assisting the victims of such abuse, and also for educating the ecclesial community concerning the protection of minors. A response will also make provision for the implementation of the appropriate canon law, and, at the same time, allow for the requirements of civil law.”
- In Part I (General Considerations), section e) is devoted to “Cooperation with Civil Authority.” It states: “Sexual abuse of minors is not just a canonical delict but also a crime prosecuted by civil law. Although relations with civil authority will differ in various countries, nevertheless it is important to cooperate with such authority within their responsibilities. Specifically, without prejudice to the sacramental internal forum, the prescriptions of civil law regarding the reporting of such crimes to the designated authority should always be followed. This collaboration, moreover, not only concerns cases of abuse committed by clerics, but also those cases which involve religious or lay persons who function in ecclesiastical structures.”
- Finally, in Part III (Suggestions for Ordinaries on Procedures), it is stated that the guidelines “are to make allowance for the legislation of the country where the Conference is located, in particular regarding what pertains to the obligation of notifying civil authorities.”
In a spirit of humility, the Holy See, while rejecting unfounded accusations, welcomes all objective and helpful observations and suggestions to combat with determination the appalling crime of sexual abuse of minors. The Holy See wishes to state once again that it shares the deep concern and anxiety expressed by the Irish authorities, by Irish citizens in general and by the Bishops, priests, religious and lay faithful of Ireland with regard to the criminal and sinful acts of sexual abuse perpetrated by clergy and religious. It also recognizes the understandable anger, disappointment and sense of betrayal of those affected — particularly the victims and their families — by these vile and deplorable acts and by the way in which they were sometimes handled by Church authorities, and for all of this it wishes to reiterate its sorrow for what happened. It is confident that the measures which the Church has introduced in recent years at a universal level, as well as in Ireland, will prove more effective in preventing the recurrence of these acts and will contribute to the healing of those who suffered abuse and to the restoration of mutual confidence and collaboration between Church and State authorities, which is essential for the effective combating of the scourge of abuse. Naturally, the Holy See is well aware that the painful situation to which the episodes of abuse have given rise cannot be resolved swiftly or easily, and that although much progress has been made, much remains to be done.
1 All texts are quoted according to the version made available to the Holy See.
2 Can. 1717 §1. Whenever an ordinary has knowledge, which at least seems true, of a delict, he is carefully to inquire personally or through another suitable person about the facts, circumstances, and imputability, unless such an inquiry seems entirely superfluous.
Holy See, Response to Mr Eamon Gilmore, Tánaiste and Minister for Foreign Affairs and Trade of Ireland, concerning the Cloyne Report, 3 September 2011. Accessed 7 January 2020 at: http://www.vatican.va/resources/resources_risposta-gilmore_20110903_en.html