Responding to Victims and Survivors of TerrorismCanadian Resource Centre for Victims of Crime 1...

Canadian Resource Centre for Victims of Crime 1

Responding to Victims and Survivors of Terrorism

Centre canadien de ressources pour les victimes de crimes

NOVA 2006Krista Gray-DonaldSteve Sullivan

Centre canadien de ressources pour les victimes de crimes

Canadian Resource Centre for Victims of Crime

? The Canadian Resource Centre for Victims of Crime (CRCVC) is a non-profit victim advocacy group

? Since its incorporation in 1993, the CRCVC has been lobbying for victims' rights and effective justice reform

? Provide services to crime victims across Canada, including victims of the bombing of Air India flight 182 and the September 11th, 2001 terrorist attacks in New York City

? Located in Ottawa and bilingual services are available

? Sponsored by the Canadian Professional Police Association


Examining the needs of Canadian victims and survivors

? Research funded by the Canadian Department of Justice, Policy Centre for Victims Issues

? Seek to identify the unique needs of terrorist victims, and areas where there are gaps in current service models

? Make recommendations to improve services for victims/survivors of terrorist attacks

Definitions in the Canadian Context

? A victim of crime is defined in legislation, both in the Criminal Code and the Corrections and Conditional Release Act

? There is no definition of terrorism; the Anti-Terrorism Act does define terrorist activities and terrorist groups

? The Anti-Terrorism Act does not address the potential victims of terrorism


History of Terrorism in Canada

? Very few incidents of mass casualty? Terrorist activity in the 1960’s and 1970’s were

predominantly politically motivated and directed at the embassies or consulates of foreign governments

? On June 23, 1985 Air India flight 182 was destroyed by a bomb of the coast of Ireland, 329 passengers and crew were killed, mostly Canadians

? The September 11th, 2001 terrorist attacks in New York City, rural Pennsylvania, and Washington killed 24 Canadians, and heightened awareness of the threat of terrorism

Recent Threats

? Arrest of seventeen adults and teens in Toronto in June 2006, accused of plotting to bomb targets in Toronto

? June 2006 arrests in Florida, seven individuals accused of plotting to destroy domestic targets

? Arrests in of twenty-four men in England and seventeen in Pakistan who were believed to be in the advanced stages of planning to simultaneously destroy ten airliners mid-flight

? Groups are believed to have been working independently of each other, demonstrating that there are many threats


Lessons Learned

? Examined disaster planning/preparedness and responses to past terrorism tragedies? Air India Flight 182? PanAm Flight 103? Oklahoma City bombing? September 11th attacks? London bombings

? The manner in which first responders, service providers, and government (including the provision of forms of compensation) responded to the incidents above was examined

Air India flight 182 ? Two bombs exploded? Very few, if any services were offered to the

Canadian victims? They felt that their Government had deserted

them, offered no information, guidance or compassion.

? There were criminal trials, one resulted in a conviction, the most recent resulted in the 2005 acquittal of the two men believed be many to have been the masterminds.

? No state compensation has ever been offered? Victims still feel they are forgotten? Air India Inquiry was just launched in Canada,

victims hope it brings some answers regarding past conduct


Air India flight 182 ? Victims hope that the inquiry will provide

answers concerning the actual bombing, and why the men accused of the bombing have been acquitted of the charges

? They also seek to identify what security and intelligence failures led to the bombing in the hopes of preventing similar tragedies

? It is felt that the Inquiry will also help to identify ways in which victims were failed and could have been helped following the disaster, and how they can be still today

? The CRCVC will be providing submissions to the Inquiry based on our work with victims of the tragedy and this research

PanAm flight 103

? Very little is reported about services offered to victims following the disaster.

? Support was sought through family and friends, close bonds between the victims in Lockerbie and abroad

? One man was convicted in Scotland, appeals are still pending

? Victims have expressed frustration at the lack of justice, despite years of investigations and trial proceedings

? A compensation agreement for the victims was reached with the Libyan government


Destruction of the Murrah Building, Oklahoma City

? Attack was universally condemned, but especially significant to the American people, in that it involved many casualties, and was perpetrated on American soil.

? Unique in that there were virtually no plans or models for responding to such an event

? A “special fund” approach to compensation? Those responsible were caught quickly and

convicted. Significant challenges to families during the trial

? Research into the response to the Oklahoma bombing has highlighted several areas that need to be addressed in planning for responding to the needs of terrorism victims in the event of future attacks

? Areas identified for future consideration:? The harm suffered by the victims? The mental health needs of the victims? The financial cost and loss associated with

the crime? The media coverage and the effect that it

has on direct and secondary victim? Issues surrounding the criminal trial process? The need for responders to be aware of,

and able to deal with the issues and needs unique to terrorism victims

Destruction of the Murrah Building, Oklahoma City (cont’d)


Destruction of the Murrah Building, Oklahoma City (cont’d)

? The impact on first responders and service providers

? The need for advance training, response planning and communicating these plans

? The importance of inter-agency cooperation? The need that victims have for information? The role that Memorials can play and how

they are established.

? All of these issues, while not directly tied to the provision of services to victims, impact on the provision of those services.

September 11th

? Attacks in the US, their scale and destruction shocked the US population and many abroad

? Mass confusion in the immediate aftermath, especially in NYC. Recovery efforts resulted in very few lives saved after the twin towers collapsed

? Many, many victims, both primary and secondary, and the public at large.

? Intense media coverage from the moment the attacks began

? One trial and conviction has resulted? Comprehensive compensation was offered? Much research has been done, identifying

areas for improvement


September 11th (cont’d)

? Areas identified for future consideration:? Advance planning, coordination and

communication protocols? Procedure regarding the identification of

those missing and deceased? Vicarious traumatization of those

responding to the scene? Fear of additional attacks felt by the public

at large, not only the victims? Concerns with media coverage in the

immediate aftermath, lack of consistent and accurate information

September 11th (cont’d)

? Retraumatization that occurs with the constant reminders in the media

? Criminal trial issues? Identification and provision of services

addressing the long term mental health needs of survivors

? Making use of naturally occurring social resources: family, community, social networks

? Addressing cultural, religious, and ethnic considerations


London Bombings, July 7 th, 2005? Coordinated multi-site attacks tested London’s

emergency response plans, which were reformulated after September 11th . The response was viewed as a success

? Many supports were put into place for the victims in very short order after the attacks

? The internet was extensively used as a means for survivors to access resources, connect with other survivors and share their stories and grief.

? Compensation was provided through the their Criminal injuries plan and a charitable fund.

London Bombings, July 7 th, 2005? Recommendations following the bombings:

? Emergency communication networks need to be improved

? Improvements must be made to ensure speedy public and media notification of events

? Recovery in the train tunnels was difficult, but most survived.

? Establish protocols regarding identification of missing and deceased

? Plans should augment the services provided at reception centres for victims

? Develop plans for the care of survivors in both the short and long term

? Emergency plans must focus on the individual, not just the incident


Common themes identified by these events

Challenges? Advance planning is lacking in most jurisdictions ? Misidentification of bodies, lack of body to identify? Media coverage can be difficult? Survivor guilt ? Speculation as to what really happened to a loved

one? Compensation issues? Long term care for many victims does not exist? Criminal trial issues? Preventing vicarious traumatization


Best practices:? Family Assistance Centres/Compassion Centres? Toll free hotlines? Pre-planning/coordination that includes victims? Streamline compensation process? Compassionate death notifications? Ongoing information briefings? Secure websites? Phones to allow people to connect with their kin

networks for support? Activities and care for children? Recognition of ongoing and evolving needs of

victims



Concerns? Positive and negative convergence of many

groups (media, panicked relatives, mental health professionals wanting to do therapy, volunteers both with and without credentials, etc.) showing up at the scene

? Role of cultural, religious, and ethnic considerations

? Failure to pre-coordinate services? Injury/death of first-responders who may rush onto

a scene, or fail to provide care for self in efforts to assist

? Damage to infrastructure impacting recovery

Symposium findings

? In conjunction with Canadian Victim Awareness Week (April 23- 29, 2006), the CRCVC hosted a one-day symposium to address the needs of Canadian victims and survivors of terrorism

? Keynote presentations were provided by Dr. James Young, special advisor to the Deputy Minister of Public Safety Emergency Preparedness Canada, and by victims – including Air India family members and a 9/11 widow

? Panel discussions covering the short and long term needs of terrorism victims also took place


Symposium findings (cont’d)

? Dr. Young - needs that should be addressed in effective planning for events involving mass casualty:? Coordination among all levels of government? Identification and use of local expertise? Consistency of message to the victims and

public? Speedy provision of assistance? Identification of casualties without delay? Services to the victims, both locally and

abroad must be at the forefront of any emergency plan


Panel – Short term needs? Members of this panel included emergency

response personnel, the Red Cross, the mental health community, and victim services. Key needs identified:? Recovery and medical needs addressed? Primary need to provide food and shelter for

those impacted or displaced ? Provide support to families? Integrate local victim services into emergency

planning? Establish a relationship between victims and

responding agencies early in the process



Panel – Short term needs? The constant need for information? Psychosocial needs of victims must be

attended to ? Access to information about ervices, for both

the short and long term should be made available

? The perception of an ongoing threat to safety needs to be addressed

? Social, kin and community networks must be fostered for the support that they give to those impacted


Keynote presentations by victims? Two victims presented reflections on their

victimization.? They presented a Canadian perspective? Their experiences were very personal, but they did

identify some common struggles:? coping with family breakdown? Financial loss? Fighting for justice? Lack of acknowledgement or support from any

level of government? A lack of rights afforded victims of other crimes? Intense media coverage? Fear of future attacks


Symposium findings (cont’d)Panel – Long term needs

? Cultural sensitivity to victims must be incorporated into all services

? Children’s needs must also be addressed? Compensation ? Provision of information, support and

advocacy after the immediate crisis? The psychological needs of victims,

counselling or therapy? The need for answers regarding what

happened? Provision of services over the long term has

historically been problematic? Legal assistance

Symposium Conclusions? There were several common themes or concerns? All involved emphasized the need for coordination

and advance planning to be able to respond to unique needs of victims

? Victims raised the issue that there must be an acknowledgement that the needs of victims carry on past the initial disaster, and continue for the long-term.

? Victims also identified that the response by authorities and government, or their perception of a lack of response, can have significant impacts on long term recovery

? Finally, media response was identified as both a tool and a concern


Preparedness and Disaster Management

? The evolution of organizational behaviour tells us that we learn from what occurred before, during and after events

? Policy makers and managers must remember that preparedness is defined differently by all

? Alan Kirschenbaum identifies four stages of disaster management: preparedness, mitigation, response and recovery

? Kirschenbaum goes on to state that disaster management agencies have to use existing structures/organizations to succeed

? Social networks and community groups should be incorporated into the four stages, as they may reduce the burden on first responders.

Are we prepared? The Toronto example

? Given the recent arrest of suspects in Toronto, the City of Toronto’s Emergency Plan was examined

? Primary stakeholders include very few who seek to serve the needs of victims of crime

? Plan highlights the need for a coordinated effort, flexibility in the face of disaster and the support of appropriate personnel, tools, and member agencies



? The primary objectives as stated in the plan do not explicitly include saving lives, identification of victims, provision of services to victims

? The primary objectives do refer to the “mobilization of all municipal, voluntary, and other agencies required”, and call for shelter to be provided to evacuated persons, but they don’t elaborate

? Consistency of message to staff, participants and media is addressed


? Operational Support Functions, which are department specific procedures not contained within the plan do make reference to damage assessment (which includes identification of victim needs), mass care, mass casualty, and mass fatality

? Unfortunately these documents are not readily accessible to the public

? Long term needs are not addressed


Models For Response to Mass Violence and Terrorism - OVC

? The Office for Victims of Crime stresses the need to incorporate existing victim services into emergency management planning

? Victim service workers are equipped to work with victims of mass criminal victimization, whose reactions differ from victims of natural disasters

? Local organizations can provide or are connected to the resources that can help the victim cope

Models For Response to Mass Violence and Terrorism - OVC

? The unique needs of children and youth can be addressed, as can cultural and ethnic considerations

? Victim service workers are equipped to recognize the signs of vicarious traumatization, and address it before it becomes detrimental to the victim response


Models For Response to Mass Violence and Terrorism - NOVA

? NOVA’s crisis response teams (CRT) are deployed when called upon by local communities.

? Have both an awareness of, and ability to address the impact of trauma on individuals and communities

? Members are trained to work in catastrophic situations.

? Members of the team support local organizations to ensure that the community is afforded the care it needs, while assisting the providers to ensure that they are not traumatized


? A CRT typically includes mental health specialists, victim advocates, public safety professionals, and members of the clergy

? There are three primary tasks the team performs:? 1) Helping local decision-makers identify all

the groups at risk of experiencing trauma ? 2) Training the caregivers who are to reach out

to those groups after the CRT has departed ? 3) Leading group crisis intervention sessions

(also known as "debriefings") to show how those private sessions can help victims start to cope with their distress



? The primary goal of this crisis intervention is to help victims and survivors regain a sense of control over their lives.

? Their mandate includes planning for long term support

? NOVA’s Model? First response: Physical rescue. ? Second response: Crisis intervention. ? Third response: Post-trauma counselling.

Looking forward - what needs to be done

? Emergency plans need to expand the role of victim service providers and include them as primary stakeholders

? The core planning must include victim services? Clear direction must be provided early in a crisis

so that victims know what is happening and where to go for information

? The Federal Government, in Canada the Department of Foreign Affairs must be proactive in assisting victims abroad, and must be equipped to provide specialized services to victims of terrorism



? Compensation plans need to be examined/revamped to ensure that there are no restrictions that prevent terrorism victims from accessing compensation

? Emergency plans and compensation schemes need to address and provide for the long term care and needs

? Privacy concerns regarding the exchange of victim information during a crisis need to be addressed

? Protocols need to be established to ensure that the secondary victimization of responders does not occur


? Canada should budget for/develop a fund to allow the Policy Centre for Victim Issues in the Canadian Department of Justice to use federal funds to serve victims of terrorism and mass violence. Special funding would need to be set aside, given the PCVI’s limited $5 million budget

? Emergency communication networks need to be improved

? Protocols must be developed to ensure that officials and the media broadcast a consistent message during and following a crisis



? Cultural, religious, and ethnic considerations must be attended to at all levels of planning and implementation

? Procedures must be developed for obtaining information about the missing and deceased, as must a protocol for death notifications

? Criminal trial issues need to be addressed so that all victims are able to attend, and participate as they are eligible to under law

How to reach us:

Canadian Resource Centre for Victims of Crime100 – 141 Catherine St. Ottawa, ONK2P 1C3Tel: 613.233.7614 / 877.232.2610Fax: [email protected]

Responding to Victims and Survivors of TerrorismCanadian Resource Centre for Victims of Crime 1...

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