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Israel - Periodic reports of States parties due in 1993: Addendum [2002] UNCRCSPR 5; CRC/C/8/Add.44 (27 February 2002)
UNITED NATIONS
|
|
CRC
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Convention on the Rights of the Child
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Distr. GENERAL
CRC/C/8/Add.44 27 February
2002
Original: ENGLISH
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COMMITTEE ON THE RIGHTS OF THE CHILD
CONSIDERATION OF REPORTS SUBMITTED BY STATES PARTIES
UNDER
ARTICLE 44 OF THE CONVENTION
Periodic reports of States parties due in 1993
ISRAEL
[20
February 2001]
GE.02-40564 (E) 050402
CONTENTS
Paragraphs Page
I. GENERAL INTRODUCTION
1 - 17 26
A. Immigration and the social and cultural
variety of the Jewish population 5 - 10 26
B. The Arab population of Israel 11 - 14 27
C. The Arab-Israeli conflict and the peace process 15 - 16 29
D. Trends and future direction in Israeli society 17 29
II. INTRODUCTION: THE RIGHTS OF CHILDREN
IN ISRAEL AT THE START OF THE THIRD
MILLENNIUM 18 - 58 30
A. Legislation 25 - 33 31
1. Rationale 25 - 30 31
2. Defining childhood 31 - 33 33
B. Adjudication 34 - 41 34
C. The dignity of children 42 - 46 36
D. The rights of children 47 - 51 38
E. Summary 52 - 58 39
III. GENERAL MEASURES OF IMPLEMENTATION 59 - 143 41
Articles 4, 42 and 44 (6) of the Convention 60 - 143 41
1. The
status of the Convention in Israeli law 60 - 72 41
(a) The
Convention’s ratification and legal status 60 - 62 41
(b) The Committee to Examine Fundamental Principles
Concerning
Children and the Law, and Their
Implementation in Legislation 63 -
65 44
(c) Parliamentary activity 66 - 72 44
CONTENTS (continued)
Paragraphs Page
2. Implementation of the
Convention by national and
local government 73 -
101 49
(a) Initiatives of government ministries
74 49
(b) Data collection and research as a basis
of
children’s rights 75 - 95 49
(c) Mechanisms
regulating implementation of the
Convention 96 52
(d) The
efforts of public agencies to implement
the Convention 97 -
101 52
3. Allocation of resources to protect the economic,
social
and cultural rights of children 102 - 105 53
(a) Mechanisms for
ensuring government and public
allocation of resources to children
103 53
(b) Government expenditures on services for
children
104 53
(c) Reducing discrepancies among groups
and
geographic areas 105 54
4. Voluntary organizations that
implement and disseminate
the Convention 106 -
129 54
(a) Children’s rights organizations 107 -
128 54
(b) Non-government organizations’ interaction
with
the Government 129 61
5. Disseminating the Convention
130 61
(a) Translating and publishing the Convention
131 61
(b) Including the Convention in curricula 132 -
133 61
(c) Disseminating the Convention among
professionals
134 - 140 61
CONTENTS (continued)
Paragraphs Page
(d) Disseminating the
Convention in the
mass media 141 -
142 62
(e) Preparation of this report
143 63
IV. DEFINITION OF THE CHILD 144 - 223 63
Article 1 of the Convention 145 - 223 63
1. Defining childhood
and legal minority 145 - 147 63
(a) Definition of childhood versus
adulthood 145 63
(b) Fetuses 146 - 147 63
2. The right to participate in civil
activities 148 - 149 64
(a) The right to vote and to be elected
148 64
(b) Identity card 149 64
3. Taking legal action:
the legal capacity of minors 150 - 151 64
4. Receiving medical care
152 - 155 65
(a) Consent to medical treatment 152 -
153 65
(b) Refusal to receive medical treatment 154 -
155 65
5. Completion of compulsory education
156 66
6. Permission to employ children 157 -
158 66
7. Marriage 159 - 162 66
8. Consent to sexual
relations 163 67
9. The compulsory draft, volunteering for military
service,
and participation in acts of war 164 68
CONTENTS (continued)
Paragraphs Page
10. Criminal and
tortious liability 165 - 168 68
(a) Criminal liability
165 68
(b) Tortious liability 166 68
(c) Statute of
limitations 167 - 169 68
11. Revocation of liberty 170 -
176 69
(a) Detention 170 - 172 69
(b) Detention for
protective purposes 173 69
(c) Imprisonment 174 -
175 70
(d) Closed residences 176 70
12. Capital punishment
and life imprisonment 177 - 180 70
13. Giving testimony in criminal
and civil court 181 - 185 71
(a) Capacity to testify
181 71
(b) Admissible testimony 182 -
183 71
(c) Limitations on the testimony of minors 184 -
185 71
14. Legal representation without parental consent 186 -
192 72
15. Out-of-home placement 193 - 194 73
16. Placement
in the custody of one parent 195 - 196 73
17. Adoption 197 -
198 73
18. Changing one’s name 199 -
200 74
19. Accessibility to information about one’s
biological family 201 74
20. Legal capacity to inherit and
transfer property 202 - 203 75
CONTENTS (continued)
Paragraphs Page
21. The right to
organize 204 75
22. Choice of religion
205 75
23. Consumption of alcohol 206 75
24. Driving
207 - 210 76
25. Summary 211 - 223 76
V. GENERAL
PRINCIPLES 224 - 314 82
A. Article 6 of the Convention - The right to
life, survival
and development 226 - 256 82
1. The right to
life and physical development 226 - 235 82
2. The right to
fulfillment of basic needs 236 - 238 84
3. Emotional, cognitive and
social development, and
the acquisition of skills 239 -
250 85
4. The right to life, survival and development of
children with disabilities 251 - 256 88
B. Article 2 of the
Convention - Non-discrimination and
equal opportunity 257 -
270 90
1. Gaps among sub-groups of the Jewish population 260 -
263 91
2. Gaps between Jews and Arabs 264 -
269 91
3. Children of foreign workers 270 93
C. Article 3
of the Convention - The best interests of
the child 271 -
297 93
1. The “best interests of the child” as a
guiding
principle 271 - 275 93
CONTENTS (continued)
Paragraphs Page
2. Preserving the best
interests of the child in
child welfare proceedings 276 -
284 94
3. Preserving the best interests of the child in
out-of-home care 285 - 293 95
4. Preserving the best
interests of the child in the
criminal justice system 294 -
297 97
D. Article 12 of the Convention - Respect for the views
of
the child 298 - 313 99
1. The right of a minor to be heard, and
respect
for a minor’s views in matters affecting him 298 -
301 99
2. Legal representation of minors 302 -
309 100
3. Youth involvement in school and communities 310 -
313 102
E. Summary 314 103
VI. CIVIL RIGHTS AND FREEDOMS
315 - 416 105
A. Articles 7 and 8 of the Convention 316 -
348 105
1. Registration of children at birth and
establishment
of identity 316 - 324 105
2. The right to a name
325 - 332 106
3. The right to acquire nationality and
protection
of nationality 333 - 338 108
(a) Nationality by
birth 333 108
(b) Nationality by birth and domicile
in
Israel 334 108
(c) Nationality by naturalization
335 108
(d) Nationality at the discretion of the
Minister
of the Interior 336 108
CONTENTS (continued)
Paragraphs Page
(e) Nationality by
return 337 108
(f) Nationality by adoption
338 108
4. Protection of children’s nationality
339 109
5. The right to know parents’ identity 340 -
346 109
6. The right to parental care 347 -
348 111
B. Article 13 of the Convention - Freedom of expression 349 -
352 111
C. Article 14 of the Convention - Freedom of religion
and
conscience 353 - 360 112
1. Freedom to convert 357 113
2. Freedom of religion in the education system 358 -
360 113
D. Article 15 of the Convention - Freedom of
association
and peaceful assembly 361 - 368 114
1. Political
assembly 364 115
2. Assembly in student and youth councils 365 -
366 115
3. Freedom of protest and demonstration 367 -
368 115
E. Article 16 of the Convention - The right to
dignity,
privacy and reputation 369 - 389 115
1. The right to
privacy in the narrow sense 371 - 377 116
2. Privacy in the narrow
sense in the education
system 378 - 385 117
3. The right to
privacy in the broad sense 386 - 389 119
F. Article 17 of the
Convention - Access to appropriate
information: regulating television,
radio and film 390 - 399 119
1. Protection against publications
about children
in the media 395 - 398 121
CONTENTS (continued)
Paragraphs Page
2. The right to
information from the education
system 399 122
G. Article 37
(a) of the Convention 400 - 416 122
A. Prohibition against torture
and cruel treatment 400 - 411 122
1. Corporal punishment of
children 403 - 409 123
2. Remedies for parental cruelty
410 124
3. The obligation to report 411 124
B. Minors
in need of protection 412 124
C. Children suspected of a criminal
offense 413 125
D. Capital punishment 414 -
415 125
E. Life imprisonment 416 125
VII. FAMILY
ENVIRONMENT AND ALTERNATIVE CARE 417 - 651 125
A. Introduction 417
- 429 125
1. Definition of the term “family” in Israeli
law 418 126
2. Family structure 419 126
(a) Family
size 420 - 422 126
(b) Family composition
423 127
(c) Marriage and birth among minors 424 -
429 128
B. Articles 5, 9 and 18 (1)-(2) of the Convention 430 -
489 129
1. Parental guidance and responsibilities 430 -
466 129
(a) Parents’ legal responsibilities 430 -
439 129
(b) Income support for families 440 - 445 132
CONTENTS (continued)
Paragraphs Page
(c) Guidance in the
care and education of
children 446 - 449 133
(d) Support
for families from social services 450 - 466 135
2. Separation of
children from their parents 467 - 489 139
(a) Divorced or separated
parents 467 - 473 139
(b) Separation by the authorities 474 - 489
141
C. Article 10 of the Convention - Family reunification 490 -
493 145
1. Entrance to Israel as a visitor
490 145
2. Permanent residence in Israel
491 145
3. Leaving Israel to emigrate or visit abroad 492 -
493 145
D. Article 11 of the Convention - Illicit transfer and
non-return 494 - 500 145
E. Article 27 (4) of the Convention
- Recovery of
maintenance for the child 501 -
502 147
F. Articles 20 and 25 of the Convention - Children
deprived
of a family environment 503 - 545 148
1. The
alternative care system in Israel 503 - 504 148
2. Foster families
505 - 511 148
3. Residential facilities 512 -
517 150
4. Children under age 14 in residential settings 518 -
527 152
5. Youth (ages 14-18) in residential settings 528 -
530 155
6. Protecting the rights of children in
out-of-home
placements 531 - 538 155
7. Periodic review of
placement 539 - 543 158
CONTENTS (continued)
Paragraphs Page
8. Non-government
involvement with children in
out-of-home care 544 -
545 158
G. Article 21 of the Convention - Adoption 546 -
577 159
1. The Adoption of Children Law 546 -
560 159
2. Adoption in practice 561 -
572 162
3. Inter-country adoption 573 - 575 164
4. Support
services for adoptive families 576 - 577 165
H. Articles 19 and 39 of
the Convention - Abuse and
neglect, recovery and reintegration 578 -
651 166
1. Legislation regarding child abuse and neglect 578 -
596 166
2. The prevalence of abuse and neglect 597 -
601 170
3. Services for children subjected to abuse and
neglect
602 - 638 172
4. Awareness and prevention of abuse and
neglect
of children 639 - 651 182
VIII. BASIC HEALTH AND
WELFARE 652 - 896 184
A. Article 23 of the Convention - Children
with
disabilities 652 - 767 184
1. Legislation 654 -
659 185
2. Rates of disability and handicap among children
in
Israel 660 - 665 186
3. The service system for disabled children in
Israel 666 - 758 189
(a) The health system 670 -
689 190
(b) The social welfare system 690 - 703 194
CONTENTS (continued)
Paragraphs Page
(c) The education
system 704 - 738 197
(d) Voluntary organizations 739 -
751 204
(e) Discounts and tax breaks 752 206
(f) Gaps
in needs and services 753 207
(g) Issues arising from the
complexity of the
service system: inter-service
coordination
and the availability of information about
services
754 - 758 207
4. The accessibility of public areas and services
759 - 767 208
B. Articles 6 and 24 of the Convention - Health and
health services 768 - 841 210
1. Basic data on the health of
children and youth
in Israel 769 - 798 210
(a) Mortality
rates of women in childbirth,
infant mortality and underweight births
770 - 774 211
(b) Child mortality
775 212
(c) Infectious diseases 776 -
780 212
(d) Accidents 781 - 785 214
(e) Adolescent health
behavior 786 - 796 215
(f) Dental health
797 218
(g) Traditional customs that may affect
a
child’s health 798 218
2. Health and preventive
services for children 799 - 833 219
(a) The legal and
organizational status of
the health system in Israel 800 -
807 219
(b) Preventive services 808 - 824 221
CONTENTS (continued)
Paragraphs Page
(c) Psychiatric
services 825 - 826 224
(d) The accessibility of services 827 -
833 225
3. Environmental factors that affect health 834 -
838 227
(a) Water quality 835 - 837 227
(b) Air
pollution 838 228
4. Considering the views of the child in the
medical process 839 - 841 228
C. Article 26 of the Convention
- Social security 842 - 869 228
1. The National Insurance Institute
844 - 846 229
2. The system of benefits 847 -
861 230
(a) Benefits directly related to children 849 -
852 231
(b) Benefits for eligible persons and
their
dependents 853 - 860 233
(c) International
conventions 861 233
3. Recent changes in benefit payments 862 -
867 233
(a) Elimination of the means test for the
children’s allowance 863 233
(b) Equalizing the
children’s allowance for
people who did not serve in the army 864
- 865 233
(c) Benefits to low income groups 866 -
867 234
4. Additional mechanisms that ensure a minimum
standard
of living for the employed 868 - 869 234
(a) Minimum wage
868 234
(b) Tax breaks 869 235
CONTENTS (continued)
Paragraphs Page
D. Article 27 (1)-(3) of
the Convention - Standard
of living 870 -
896 235
1. Recognition of the right to an adequate standard
of
living 871 235
2. Poverty 872 - 883 235
(a) Measuring
poverty 872 - 874 235
(b) The extent of poverty among
Israel’s
children: changes over time
875 236
(c) The extent of poverty among different
groups
876 - 878 236
(d) The effectiveness of mechanisms to
reduce
the extent of poverty 879 - 881 237
(e) The national
council for narrowing social
gaps and reducing poverty 882 -
883 239
3. Additional assistance with basic living
conditions
for families with children 884 239
4. The right
to adequate housing 885 - 896 240
(a) Assistance for owners of
inadequate housing 888 - 892 240
(b) Assistance to the homeless
893 - 894 241
(c) Population groups with special housing
problems 895 - 896 241
IX. EDUCATION, RECREATION AND CULTURAL
ACTIVITIES 897 - 1263 243
Articles 28 and 29 of the Convention
897 - 1263 243
1. The constitutional right to education 900 -
903 243
CONTENTS (continued)
Paragraphs Page
2. Legislation 904 -
919 244
(a) Government education 904 -
906 244
(b) Compulsory education 907 - 908 245
(c) Free
education 909 - 912 245
(d) Extended school day and
enrichment
programs 913 246
(e) Special education 914 -
919 246
3. The goals of education in Israel 920 -
922 247
4. Resources in education 923 -
928 248
(a) National expenditures on education
923 248
(b) Number of classes, number of students per
class,
and number of school hours 924 - 926 248
(c) The quality and
training of teaching staff 927 - 928 249
5. The structure of the
education system 929 - 974 250
(a) Description of the system 929 -
937 250
(b) Early childhood education (newborn-age 5) 938 -
942 251
(c) Elementary schools (ages 6-12) 943 -
946 252
(d) Secondary schools 947 - 956 253
(e) Boarding
schools 957 - 966 256
(f) Scholastic outcomes of high school
education 967 - 974 258
6. Equal opportunities in education,
preventing
dropping out, and programs for special populations 975 -
1024 260
(a) Equal opportunities in education 975 - 978 260
CONTENTS (continued)
Paragraphs Page
(b) The extended school
day 979 - 980 261
(c) The disadvantage index
981 262
(d) Preventing dropping out 982 -
986 262
(e) Educational services and programs for students
with
adjustment or other difficulties 987 - 1021 264
(f) Gifted students
1022 - 1024 270
7. Children’s rights in the education system
1025 - 1083 271
(a) The rights of students in schools 1034 -
1055 272
(b) Dissemination and implementation of individual
rights in the education system 1056 -
1065 276
(c) Discipline and punishment in school 1066 -
1070 278
(d) The school climate and violence in schools 1071 -
1083 279
8. The integration of immigrant children and youth
into
the education system 1084 - 1138 281
(a) The integration of
immigrant children into
the education system 1088 -
1116 281
(b) Special efforts of the education system 1117 -
1137 286
(c) Social integration 1138 290
9. The Arab
education system 1139 - 1181 291
(a) The structure of the education
system 1144 - 1152 292
(b) Scholastic achievements in the Arab and
Druze sector 1153 - 1154 294
(c) Resources in the Arab
education system 1155 - 1174 295
CONTENTS (continued)
Paragraphs Page
(d) Programs for weak
students and drop outs in the
Arab sector 1175 -
1176 300
(e) The education system in the Bedouin sector 1177 -
1180 300
(f) The status of Arabic language and culture
1181 301
10. Informal education 1182 -
1227 301
(a) Informal education in schools 1185 -
1207 301
(b) Informal education outside of schools 1208 -
1220 307
(c) Informal education in the Arab sector 1221 -
1227 309
11. Leisure, recreation and cultural activities 1228 -
1263 310
(a) The budget for culture, entertainment and sport 1229 -
1232 310
(b) Cultural institutions that hold activities
for
children 1233 - 1245 311
(c) Cultural institutions in education
frameworks 1246 - 1248 313
(d) The role of the media in promoting
the
participation of children in cultural life 1249 -
1250 313
(e) Preserving cultural identity and traditions 1251 -
1253 314
(f) Patterns of recreational and cultural
activity
among children and youth 1254 - 1263 314
X. SPECIAL
PROTECTION MEASURES 1264 - 1462 318
A. Articles 37, 39 and 40 of the
Convention -
Children involved in the juvenile justice system 1265 -
1379 318
1. Age of criminal responsibility 1265 -
1266 318
CONTENTS (continued)
Paragraphs Page
2. Principles for
dealing with children in the
criminal justice system 1267 -
1270 318
(a) Application of the Youth (Trial, Punishment
and
Modes of Treatment) Law 1268 - 1269 319
(b) The framework of action
and
general principles 1270 319
3. Minors as suspects or
defendants 1271 - 1308 320
(a) Basic rights 1271 -
1275 320
(b) Conducting the investigation 1276 -
1279 321
(c) Special protection of minors in
criminal
proceedings 1280 322
(d) Special protection of minors in
criminal proceedings: implementation 1281 -
1286 322
(e) Representation of minors in
criminal
proceedings 1287 - 1290 325
(f) Opening a criminal file and
filing an indictment 1291 - 1295 326
(g) The role of the
Youth Probation Service
during investigation and trial 1296 -
1308 327
4. Sentencing, punishment and modes of treatment 1309 -
1335 330
(a) General principles 1309 -
1311 330
(b) Hearing procedures for juvenile court
1312 331
(c) Representation of minors in court 1313 -
1316 331
(d) The right to an
interpreter 1317 332
CONTENTS (continued)
Paragraphs Page
(e) Prohibition
against the publication and
transfer of information, and the statute
of limitations 1318 - 1322 332
(f) Rehabilitation versus
punishment 1323 - 1327 333
(g) Modes of punishment
1328 334
(h) Modes of treatment 1329 -
1331 334
(i) Court considerations and verdicts 1332 -
1334 335
(j) Appeal of judgments 1335 336
5. Children
deprived of their liberty, including arrest,
imprisonment and placement
in a residence 1336 - 1371 337
(a) Considerations in court decisions
to
deprive a minor of his liberty 1336 -
1337 337
(b) Arrest 1338 - 1354 337
(c) Open and closed
residences 1355 - 1369 341
(d) Imprisonment 1370 -
1371 345
6. Sentencing of children, capital punishment,
and
life imprisonment 1372 345
7. The rehabilitation and reintegration
into society
of youth offenders and youth at risk of
becoming
offenders 1373 346
8. The proposed reform of the
Youth (Trial,
Punishment and Modes of Treatment) Law 1374 -
1378 350
9. Summary 1379 351
CONTENTS (continued)
Paragraphs Page
B. Articles 32-36 of the
Convention - Children in situations
of exploitation, including physical
and psychological
recovery and reintegration into society 1380 -
1454 351
1. Economic exploitation of children, including
child
labor 1380 - 1403 351
2. Sexual exploitation and sexual abuse 1404
- 1448 356
(a) The legal situation: definition of offenses 1404 -
1410 356
(b) Treatment and rehabilitation 1411 -
1413 358
(c) The committee to examine the commercial
sexual
exploitation of minors 1414 - 1421 359
(d) Protection of minor
victims of sexual
offenses in criminal proceedings 1422 -
1448 360
3. Trafficking in children 1449 366
4. Drug abuse
1450 - 1453 367
5. Other forms of exploitation
1454 368
C. Articles 22, 38 and 39 of the Convention -
Children in emergency situations 1455 - 1460 368
1. Children
in armed conflict 1455 - 1458 368
(a) The age of military draft
1456 368
(b) Defense and rehabilitation
1458 368
2. Child refugees 1459 - 1460 369
D. Article 30
of the Convention -
Children belonging to minority groups 1461 -
1462 369
Bibliography 370
List of tables
Page
Table 1: Basic
socio-demographic characteristics of the Arab population,
compared to the
Jewish population 28
Table 2: Court rulings based on articles of the
Convention on the
Rights of the Child 42
Table 3: Laws enacted
during the past 10 years 46
Table 4: Amendments to laws enacted
during the past 10 years 47
Table 5: Proposed bills in advanced stages
of ratification 49
Table 6: Referrals to the Ombudsman for Children and
Youth,
by subject and sector, 1996 56
Table 7: Definition of the
child: summary of the rights and
obligations of minors 76
Table
8: Number of children per family, by subpopulation
(average and
percentage) 127
Table 9: Percentage of children in single-parent
families,
by subpopulation, 1998 127
Table 10: Percentage of
minors (age 16-17 or less) marrying,
by gender and
religion 128
Table 11: Children receiving services through a social
welfare department, 1995 137
Table 12: Cases of abduction handled by
the Attorney General under the
Hague Convention on the Civil Aspect of
International
Child Abduction, 1993-1996 (in absolute numbers)
147
Table 13: Children placed in foster families by the Ministry of
Labor and
Social Affairs in 1996, by age (in absolute numbers and
percentage) 149
Table 14: Number of residential settings and
residents, by residents’ age
and type of education, 1996-1997
151
Table 15: Major problems of children under age 14 in residential
settings 153
Table 16: Children adopted within Israel, 1995-1997 (in
absolute numbers) 164
List of tables (continued)
Page
Table 17:
Characteristics of older children adopted between 1985 and 1995
164
Table 18: Estimated children at risk known to social welfare
departments and
children at risk identified by universal
services 171
Table 19: Characteristics of sub-groups of children at
risk 172
Table 20: Children referred or reported to a child
protection officer in 1996,
by primary type of maltreatment
175
Table 21: Characteristics of children in the care of child
protection officers
in four cities, 1992-1993 176
Table 22:
Children in the care of a child protection officer, by type of abuse
and
neglect and by age group 177
Table 23: Services provided to children
in the care of a child protection
officer, by age 178
Table 24:
Services provided to the families of children in the care of a
child
protection officer 178
Table 25: Components of care at three emergency
centers, 1993-1996 180
Table 26: Rates of disability among children
living in the community in Israel,
by type of disability 188
Table
27: Disabilities among children living in the community in the Jewish
and
Arab sectors, by type of disability and age 189
Table 28: Children
receiving National Insurance Institute Disability Benefits
in June 1997, by
age (in absolute numbers) 195
Table 29: Students in special education
frameworks, by type of framework, 1996 199
Table 30: Children in
special education frameworks (special education schools
or special classes
in regular schools), by main disability 200
Table 31: Infant mortality
per 1,000 live births, by population group, 1979-1996 211
Table
32: Causes of death among children ages 1-14 in 1996,
by population group
212
List of tables (continued)
Page
Table
33: Contagious and infectious diseases among children newborn to age 14
in
1996, by age and population group (per 100,000 in each age group)
213
Table 34: New cases of AIDS among children newborn to age 14
(per 100,000 children) in Israel, by year 214
Table 35: Live
births among minors in 1998, by age, population group
and marital status
217
Table 36: Distribution of physicians and number of physician
visits by children
newborn-age 4 in 1993, by area of residence
225
Table 37: The incidence of poverty among children in different
groups in 1998 237
Table 38: The incidence of poverty among children,
1980-1998 238
Table 39: The percentage of children in different groups
living below the
poverty line or removed from poverty by transfer payments
and
taxes in 1998 239
Table 40: Number of immigrant families
residing in temporary housing, by year 242
Table 41: Average number
of students per class, by sector 248
Table 42: Level of education
among teachers, by sector 249
Table 43: The structure of the education
system: the number of students in
the education system, by type of
framework, 1998/99 250
Table 44: Preschool attendance, by sector,
1997/98 252
Table 45: Elementary school attendance rates (ages 6-12),
by sector 253
Table 46: Attendance rates of students ages 14-17 at
high schools under the
surveillance of the Ministry of Education, by sector
255
Table 47: Attendance rates at high schools under the surveillance
of the
Ministry of Education, by age and sector 255
Table 48:
Attendance rates of students ages 15-18, by sector and
socio-economic
level of town of residence, 1993 256
List of tables (continued)
Page
Table 49:
Percentage of students age 17 eligible for a matriculation certificate,
by
sector and selected demographic characteristics, 1987-1997 259
Table
50: Guidance and psychological counseling in schools: the percentage
of
schools in which counseling was provided in 1994/95 265
Table 51:
Preschool attendance rates among different age groups, by sector
292
Table 52: Attendance rates of youth ages 14-17 in schools under the
surveillance
of the Ministry of Education, by sector 293
Table 53:
Attendance rates, by age and sector, 1997/98 293
Table 54: Average
attendance rates of Arab students in grades 9-12,
by gender
294
Table 55: 12th-grade attendance rates, by sector, 1997/98
294
Table 56: Average number of students per class, by sector
(1980-1998) 296
Table 57: Allocation of resources to different
sectors, 1992-1996 297
Table 58: Percentage of schools having
different support services,
by sector (1994/95) 297
Table 59:
Frequency of attendance at cultural performances and
exhibitions,
1997 315
Table 60: Exposure to the media among Jewish youth
315
Table 61: Types of recreational activity of 9th-12th grade
students in 1997,
by sector 316
Table 62: Youth participation in
recreational activities outside the home during
the past month, by sector,
1990/91 317
Table 63: Investigation department heads reporting
violations of the instructions
for handling minors at their police station,
by frequency of
non-compliance 323
List of tables (continued)
Page
Table 64:
Police officers responding “agree” or “definitely
agree” with statements
concerning the rights of a minor in criminal
proceedings, by
respondents’ position 324
Table 65:
Juvenile files in 1998, by type of offense 329
Table 66: Principal
demographic characteristics of minors with
a criminal file, 1996
329
Table 67: Family characteristics of minors with a criminal file
who were
referred to the Youth Probation Service in 1996, compared to
all children in Israel 330
Table 68: 1996 court verdicts in cases
involving minors, by minor’s age 336
Table 69: Arrest of minors
and duration of arrest in 1998, by age (in numbers) 341
Table 70:
Principal agencies treating minors suspected of having committed
an
offense 347
Table 71: Work and study among youth ages 15-17 in 1998,
by population group 355
Table 72: Police files on offenses
against minors opened in 1998 363
I. GENERAL INTRODUCTION
- At
the end of 1998, the population of Israel numbered 6,041,400 individuals,
4,785,100 (79%) of whom were Jews and 1,256,300 (21%)
of whom were nonJews,
primarily Moslem Arabs. In 1998, 2,061,600 children ages 017 (up to their 18th
birthday) lived in Israel,
representing 34% of the country’s population.
The composition of Israel’s child population reflects the heterogeneity
of
its society. Twentyfive percent of Israel’s children are Arabs, the
majority (81%) of them Moslems and the remainder of
them Druze and Christians,
in varying percentages. Approximately 10% of Israel’s children are new
immigrants, 2% of whom immigrated
from Ethiopia and 8% of whom immigrated from
the former Soviet Union.
- Most
(89%) of the children in Israel live in urban centers. The percentage of
children living in rural communities is higher among
the Arab citizens of
Israel, reaching 21. About 12% of Israel’s children 9% of the Arabs and
14% of the Jews live in mixed
communities of Jews and Arabs.
- Many
of the children in Israel live in large families of four or more children; in
1998, this group represented 16% of all of the
Israeli households with children
up to age 18. A greater percentage of Arab families have four or more children.
Relative to other
western countries, a small percentage (7.4%) of Israel’s
children live in singleparent families.
- A
number of factors have played and continue to play a decisive role in
determining the character of Israeli society. One is the
social and cultural
diversity of the Jewish population, resulting primarily from immigration from a
wide range of countries of origin
but also from differences in religious
observance. Another is the nature of relations between the Jewish majority and
the significant
Arab minority. To this may be added the ArabIsraeli conflict
and the ongoing peace process.
A. Immigration and the social and cultural variety of the
Jewish population
- The
disastrous results of the Holocaust had an immeasurable influence on the
development of Israel’s political ethos, which
in turn influenced
Israel’s policy on a multitude of issues, including immigration. Since
its establishment in 1948, the population
of the State of Israel has increased
more than sixfold primarily as a result of the immigration of Jews from all
corners of the
world, who brought with them a variety of cultures and
customs.
- Immigration
has contributed to the unique cultural diversity of Israel’s Jewish
population, which comprises people who were
born and raised in practically all
of the various cultures and geographic areas of the world. Consequently,
equality among the ethnically
diverse groups within the Jewish population has
been of concern throughout the State’s history.
- In
addition, the absorption of large numbers of immigrants from differing cultures
was a significant economic burden on the fledgling
State, particularly given its
limited resources at that time. Many of the immigrants spent several years in
tent cities and transit
camps before being settled in permanent housing, and
compulsory elementary education was instituted for the first time only in 1956,
and even then without a sufficient number of teachers and
schools.
- The
absorption of large numbers of immigrants has also had farreaching social
implications. There were discrepancies in educational
background and family
size between the two largest groups of immigrants in the 1940s and 1950s. The
level of education of immigrants
from Asian and African countries was lower, and
their families larger, than those of immigrants from European countries.
Moreover,
immigrants from Asia and Africa were encouraged to replace their
cultural, and even religious, heritage with the nascent “Israeli”
culture. The social and cultural education of immigrants from Europe and the
Americas enabled them to adopt the new culture with
greater ease than could
immigrants from Asia and Africa, who found it difficult to adjust to the new
society and to succeed socially
and economically. Moreover, during that period,
Israel had to cope with general issues of housing, employment, and social
integration.
- Fortunately,
significant changes have taken place in Israel’s outlook on integration.
Over the years, a more pluralistic approach
has developed, which recognizes the
importance to immigrants and to the larger society of preserving cultural
traditions. This recognition
is now reflected in government policy and in the
allocation of resources.
- The
latest wave of immigration began in late 1989; by the end of 1996, it had
brought 750,000 people to Israel, increasing the State’s
population
by 17% in seven years. Most (87%) of these immigrants 656,000 came from
the former Soviet Union, although an additional
30,000 came from Ethiopia. Many
of the latter had subsisted on farming in the mountains of Ethiopia, and had had
a most limited
education; the society they came to is radically different.
Although the population of Ethiopian immigrants (including 15,000 immigrants
who
arrived in Israel in the early 1980s) is numerically small, its cultural
uniqueness and limited educational and financial resources
pose a challenge to
Israeli society, which is striving to absorb them socially and economically.
B. The Arab population of Israel
- In
1998, the Arab population of Israel comprised 1,256,300 individuals, who
represented close to onefifth of Israel’s total
population (compared to
13% of the total population at the establishment of the State in 1948). The
increase in the relative proportion
of Arabs in the total population, despite
the constant immigration of Jews to Israel, is a result of the high birth rate
in the Arab
population, as well as the constant increase in life expectancy in
the total population.
- Israel’s
Arab population is mainly resides in the Galilee in the north; the Negev desert
in the south; and a southnorth triangle
in the center of the country. The Arab
population comprises subpopulations that differ in their religious, social and
cultural characteristics.
These groups may be differentiated by religion (80%
are Moslems, 11% are Christians, and 9% are Druze), by residence (urban versus
rural), and by culture or lifestyle (Bedouin, Samaritan, Circassian). This
diversity is also expressed in differing birth rates,
housing conditions, and
economic and employment status.
- Table
1 presents some basic sociodemographic characteristics of the Arab population,
compared to the general population of Israel.
As the Table reveals, the Arab
population is typified by larger families, lower levels of education, and lower
income than that
of the total
Israeli population. Consequently, the percentage of Arab children who live
below the poverty
line is very high. It is important to note that there are
differences among the different groups in the Arab population. For example,
among the Christian Arabs, families are smaller and levels of (women’s)
employment and income are higher than among the other
groups.
Table 1
Basic sociodemographic characteristics of the Arab population,
compared to the Jewish population (in %)
|
|
Jewish population
|
Education
|
|
|
Women
|
|
|
Fewer than eight years
|
38.5
|
14.8
|
1112 years
|
26.5
|
35.4
|
Postsecondary
|
18.6
|
39.3
|
Men
|
|
|
Fewer than eight years
|
28.7
|
11.1
|
1112 years
|
30.0
|
37.9
|
Postsecondary
|
20.7
|
38.8
|
Average number of children per household
|
3.04
|
2.2
|
Families below the poverty line
|
37.6
|
16.6*
|
Children below the poverty line
|
42.7
|
22.9
|
Employment (in the civilian labor force)
|
|
|
Women
|
19.5
|
51.0
|
Men
|
66.4
|
60.6
|
Source: Central Bureau of Statistics, 1999.
*
Percentage of the total population.
- Israel
was established as a Jewish and democratic State. Its declaration of
independence calls for “full equal rights for all
citizens, regardless of
gender, religion, or race”. Members of a minority are full citizens with
equal rights who participate
in elections, are represented in the Knesset
(Israel’s parliament), and are entitled to all of the services that the
State
provides its citizens. Nevertheless, the continuing conflict between
Israel and the neighboring Arab States and the social and economic
gaps between
Arabs and Jews have contributed to tensions between the Arab minority and the
Jewish majority. The development of social
and municipal services in the Arab
sector has lagged behind that in the Jewish sector, in part due to discrepancies
in the allocation
of government resources. This has delayed the attainment of
social and economic equality by the Arab population. Although Israel’s
governments have recently taken significant steps to accelerate the social and
economic advancement of the Arab population, it is
clear that achieving equality
represents a major ongoing challenge.
C. The ArabIsraeli conflict and the peace process
- Since
the declaration of independence in 1948, Israel has been in a state of military
conflict with neighboring Arab countries. Five
wars, and several periods of
active conflict have passed since the establishment of the State. This has
created a need for military
security, and has led to the allocation of a
significant proportion of the national budget to defense. This in turn has
sparked
unending argument over the priority of military versus civilian
expenditures.
- Efforts
have always been made to end the conflict between Israel and her Arab neighbors.
In 1979, a first peace agreement was signed
with Egypt. In October 1991, a
conference was convened in Madrid to inaugurate direct peace talks.
Subsequently, bilateral negotiations
have been conducted between Israel and
Syria, Lebanon, Jordan and the Palestinians, as well as multilateral talks on
key regional
issues. To date, these negotiations have resulted in a peace
treaty between Israel and Jordan, and a series of interim agreements
with the
Palestinians.
D. Trends and future directions in Israeli society
- The
processes of immigration in the distant and recent past, the social and cultural
diversity within Israeli society, the continuing
conflict with Arab countries,
and the need to pursue equality and coexistence with the Arab minority pose many
challenges for the
State of Israel:
− Poverty is widespread among the child population in Israel; in fact, the
poverty rate among children has risen dramatically
since the 1970s. In addition
to being a problem onto itself, poverty hinders scholastic achievement, fosters
delinquency, and impedes
the attainment of equal
opportunity.
− It is thus not surprising that an underclass is developing in Israel,
with a third generation of children being born into
families in distress. These
are, on one hand, families that originally came to Israel during the mass
immigration of the 1950s,
but failed to successfully integrate into Israeli
society, instead becoming trapped in a cycle of decline from one generation to
the next. In addition to material and physical deprivation, this group is
developing a “culture of poverty”, and is
involved in crime to an
extent disproportionate to its representation in the population. On the other
hand, there is the large group
of poor among the Arab population, which is an
outgrowth of major differences in education and family size.
− Israel is also prey to the social ills that plague other western
countries, such as high unemployment rates, increased divorce
rates, and
increasing rates of addiction to drugs and alcohol. Although these problems are
less common in Israel than in many western
societies, they are much more
prevalent today than they were in the past.
− Naturally, the Arab population is affected by the same factors that
affect all of Israeli society. Nevertheless, and at
the same time, Arab society
is undergoing rapid changes in its internal social norms and values. These
changes parallel the transition
that was experienced by Jewish families from
North Africa and the Middle East in
the 1950s and 1960s. While these changes add to the difficulties faced
by Arab children, at the same time they create enhanced opportunities.
The
broader integration of Arab women into the labor force and of Arab girls in the
education system is one of the positive outcomes.
Arab children and youth also
face the special challenge of preserving their cultural heritage and reconciling
their national identity
with their Israeli citizenship.
− Recent immigrants to Israel represent another group in transition.
Immigrants from Ethiopia, as well as those from the former
Soviet Union, find
themselves in a very different culture, to which they must adjust. For
Ethiopian immigrants, the challenge is
multiplied by the very large educational
gap that they need to overcome in order to achieve equality of opportunity. For
Russian
immigrant children, the challenge is to maintain the high levels of
education of their parents despite the difficulties they face
in their new
society.
− Israel’s ability to address the social, ethnic and national
differences will have a major influence on its ability
to fulfill the promise of
the Convention on the Rights of the Child in the years
ahead.
II. INTRODUCTION: THE RIGHTS OF CHILDREN IN ISRAEL
AT
THE START OF THE THIRD MILLENNIUM
- In
this chapter, we will sketch a general picture of children’s rights in
Israeli law. In so doing, we will attempt to show
how the United Nations (UN)
Convention on the Rights of the Child is interpreted and implemented in the
State of Israel, as required
by article 44 (2) of the
Convention.
- This
report is being presented at the start of an era that is likely to witness
significant change in the laws that concern children
throughout the world.
These laws have already seen social, cultural and historical upheaval. To a
certain extent, the laws concerning
children have developed much as have the
laws concerning other groups, such as women and minorities. The current trend
is one of
transition from seeing these groups as having no rights or as being
the object of another group’s rights (e.g., women, children
and black men
as the chattel of white men), to one of seeing them as having rights of their
own. Nevertheless, children still differ
from women and ethnic or religious
minorities, as paternalistic considerations are applied to them, preventing the
absolute equalization
of their rights with those granted to all human
beings.
- The
lion’s share of 20th century law concerning children is based on the
principle of “the best interests of the child”,
which views children
as being distinct from the “general” class of human beings who are
entitled to a certain type and
quantity of rights. Children are perceived as
lacking the ability to exercise mature, free will or to make decisions that will
affect
their lives. Consequently, the authority to settle matters concerning
children is placed in the hands of others, usually parents
or the government,
who are required to act in accordance with the presumed best interests of the
child. This principle underlies
the UN Convention on the Rights of the Child
and, despite rhetoric regarding the human rights of children, has also long
guided legislation
and adjudication in Israel, as elsewhere.
- During
the past two decades, new developments have occurred: The correlation between
children’s rights and human rights has
begun to exceed the limits of
rhetoric per se. The perception that human rights should be applied to children
has given rise to
a doctrine that requires drawing normative, practicable
conclusions some of which may be at odds with those drawn from the principle
of
“the best interests of the child”. Increasingly, a child has the
right to be heard in matters concerning him and
to have his wishes respected,
even when these do not coincide with what adults perceive to be his “best
interest”. A
1998 amendment to section 27D (a) of the Youth
Employment Law 1953 determined that “in granting a permit to employ a
minor,
a young person who is capable of expressing his opinion will have the
right to state his opinion regarding the granting of a permit
for his
employment, and his opinion will be given due weight, in accordance with his age
and maturity”. Thus, in legal terms,
children are being increasingly
likened to other groups, such as women and minorities, and are being granted the
same status as human
beings in general. This trend is also clearly reflected in
the recent amendment to section 149G (a) of the Municipalities Ordinance,
which
stipulates that “the [local] authority will appoint a committee to plan
activities that promote the status of children
and youth, protect them, and
secure their rights, including nondiscrimination, the best interests of the
child, respect for the views
of the child, and the right to life, survival and
development to the maximum extent possible”.
- This
trend may have several explanations, one of which is the rapid pace of
maturation, spurred by exposure to the media of an intensity
unknown to past
generations of children. Education and coming of age are today different in
duration, content and essence than in
the past. This phenomenon has
implications for the rights of children.
- Another
possible explanation for this trend is the acknowledgment of the importance of
human rights overall, and the need to defend
them rigorously. Increasingly,
children are viewed as human beings who have rights independent of and separate
from those of their
parents. At the same time, it is also customary to view the
right to bear and raise children, and to educate them according to one’s
beliefs, as a fundamental human right. The trend to recognize the rights of
children is likely to reinforce the recognition and
protection of the rights of
parents regarding their children.
- Although
the perception of children as having rights independent of their parents is no
longer unusual, and in fact is common rhetoric,
in Israel, most of the laws and
rulings regarding children are the outgrowth of a more traditional perspective.
Specifically, this
perspectives stresses the best interests of the child on one
hand, and the rights of parents, on the other. Not only do these goals
not
always coincide, but in fact they often conflict, and lead to opposite
conclusions. In this chapter we will demonstrate how
this tension is reflected
in Israeli law.
A. Legislation
1. Rationale
- Underlying
Israeli legislation concerning children is the assertion that childhood is
unique. This is reflected in the fundamental
Guardianship and Legal Capacity
Law 1962. Primarily, this law defines the period of minority as ending at the
age of 18, and obligates
parents to meet all the needs of their minor children and to prepare them for
life as adults. The law requires parents to act in
accordance with the
“best interests of the child” (section 25), “as devoted
parents would act under the circumstances”
(section 17).
- However,
it is important to note that this law, which was enacted nearly 40 years ago,
does not consider the rights of the child,
as distinct from the best interests
of the child or those of the parents. By lumping together minors and people who
are non compos mentis (that is, who due to illness or disability (such as
mental illness or retardation) are incapable of looking out for their own
interests),
the law indiscriminately restricts a child’s freedom to take
legal action.
- Fortunately,
the Guardianship and Legal Capacity Law is not the only law concerning children.
There is no one principle underlying
the many laws concerning children, though
most of them consider the “best interests of the child”. Often,
what is perceived
to constitute “the best interests of the child” is
fairly anachronistic, and in itself is the source of debate. However,
there are
also more innovative laws, which seek, at least in part, to uphold the rights of
the child.
- To
illustrate, it is doubtful whether the “best interests of the child”
are served in each and every instance by the order
obligating a child to apply
for a patent through a legal guardian (section 49 of the Patents Law 1967), or
the order forbidding a
child to join an association (section 15 of the Amutot
(NonProfit Societies) Law 1980). A more controversial example is that of
the
anonymity granted to sperm and ova donors, which prevents children who were born
as a result of such donations from discovering
the identity of their biological
father or mother. While this legal situation may facilitate the donation of
sperm and ova when
necessary, and while it may improve the chances of becoming a
parent for some adults, it may not serve the “best interests”
of
their progeny, as the sanction against their knowing their genetic identity is
an affront to their dignity, and denies them information
that is essential to
their formulating a sense of self. On the other hand, given the assumed
contribution of the sperm or ova donor’s
anonymity to the very birth of
the child, one may argue that this anonymity indeed serves his
interests.
- Some
laws appear to show concern not for the best interests of the child, but rather
for the best interests of society. For example,
beginning at age ten, the
consent of a child is a requisite for his conversion from one religion to
another (section 13A(b) of the
Guardianship and Legal Capacity Law 1962).
However, it seems this stipulation is an outgrowth of the political and social
sensitivity
to conversion in Israel, rather than of consideration for a
child’s right, or even “best interest”. An amendment
made in
2000 to section 185 of the Penal Law 1977 forbids the sale of brass knuckles or
a knife (except one for household use) to
a minor. While this sanction is
somewhat paternalistic, it is also meant to protect minors from exposure to
harm. A 1999 amendment
to section 8C of the Youth (Care and Supervision)
Law 1960 stated that “a court sitting in the matter of a minor is
authorized,
at any time, to appoint a legal guardian for the legal proceedings
or any matter arising therefrom, if this will serve the best interests
of the
minor or protect his interests”. This the court may do without hearing
the position of the minor before appointing
the guardian. A 1998 amendment to
section 2E(a)(2) of the Business Licensing Law 1968 stipulates that the
licensing authority is
authorized to ban the inclusion in a business of sexual
devices for minors under the age of 17. The proposed Restriction on Advertising
Tobacco Smoking Products (Amendment No. 4) (Indirect Advertising and
Protection of Youth) 1998 would restrict the advertisement and
distribution
of cigarettes to minors; the proposed Protection of Genetic Information Law 1998
would make the retrieval of genetic
information from minors age 16 and over
conditional upon their consent, and would allow the retrieval of genetic
information from
younger minors and the legally incompetent only on the consent
of their legal guardian, in part “to improve the state of the
minor or
incompetent”.
- Nevertheless,
signs are beginning to appear on the Israeli legislative landscape that the
traditional, paternalistic perspective is
changing into one that emphasizes the
child’s independent rights, among them the right to dignity. For example,
section 3(d)
of the Court for Family Matters Law 1995 allows minors to file a
legal claim themselves in any instance in which their rights are
in danger of
infringement. In 1995, section 8 of the Youth (Care and Supervision) Law 1960
was amended to require the courts to
allow a minor to appear and express his
views before the rendering of a judgment. An amendment from the same year
determines the
status of minors who have reached age 15 and who oppose
psychiatric hospitalization (section 3F of that law). The Adoption of Children
Law 1981 stipulates that children who have reached the age of nine must be
heard, as must children who are younger but who understand
their circumstances,
prior to the handing down of an adoption order. According to section 187 (d) of
the Criminal Procedures [Consolidated
Version] Law 1982, agreement to an inquiry
into the state of a victim of sexual assault who is over age 14 can be granted
by the
victim herself, without the consent of her legal guardian. Further,
section 1 of the Detection of the AIDS Virus in Minors Law 1996
determines that
“despite the rule of law, a test to determine the presence of the AIDS/HIV
virus in a minor will be conducted
at the minor’s request, even without
the consent of his parent or legal guardian (hereafter, his representative) ...
if the
following [conditions] have been fulfilled: (1) the physician has
provided the minor with a full explanation...and is satisfied
that the minor has
understood the explanation; (2) the physician has raised the possibility of
obtaining the consent of the minor’s
representative, but the minor has
refused; (3) the physician is convinced that, given the minor’s age,
emotional maturity and
capacity for free will, his best interest requires
conducting the test without the consent of his representative”.
Nevertheless,
at present, there is no law in Israel regarding the general
obligation to hear children in any matter pertaining to their lives,
as is
stipulated by article 12 of the UN Convention on the Rights of the Child or by
the British Children’s Act of 1989. It
is worth noting that Israeli law
does not give any such order concerning adults, either. Consequently, it may be
possible to base
the right of a child to a hearing on the laws of natural
justice set in case law, which is the source of the general right to a hearing
in Israel. In practice, there are many cases in which a child’s claims
are not heard, even though the right to be heard would
be granted to an adult in
similar circumstances.
2. Defining childhood
- As
noted, the general rule of law defines a minor as being age 18 or less.
However, specific laws define a variety of age limitations
and restrictions
concerning children. Review of these laws leads to the conclusion that there is
no uniform criterion in this matter,
and that the variety of arrangements is the
fruit of chance. Thus for example, children in Israel have the right to express
their
opinion regarding their adoption beginning at age nine, and to refuse to
undergo religious conversion beginning at age ten. They
carry criminal
responsibility and liability for damages from the age of 12, may only be legally
employed from the age of 15, may
change their names only after they have reached
age 18, and may be elected to the Knesset only after they have reached age
21.
- This
corpus of legislation is based in large part on an arbitrary and inflexible
definition that does not address the personal circumstances
or capacity of the
child. One may even claim that this automatic definition of legal minority is
unjust. The denial of freedom
that is a consequence of this definition does not
distinguish between those who should have their freedoms denied, and those who
should not. One may also claim that any arbitrary approach to human beings is
unjust, particularly if freedoms are granted or denied
based on that approach.
It nevertheless seems that it is impossible to avoid defining “legal
minority” arbitrarily (that
is, by setting an age ceiling), and on this
the UN Convention is based. Flexible, casebycase definition is practically
impossible,
both because of the large number of minors and because minors are
continuously maturing. Furthermore, casebycase definition might
invoke an
invasion of privacy.
- Nevertheless,
some Israeli laws allow the courts to rule in light of a child’s personal
circumstances. For example, under the
Marriage Age Law 1950, the court must
review the personal circumstances of every girl who asks to be married before
reaching marriageable
age as defined by law. Under the Youth Employment Law
1953, the Minister of Labor and Social Affairs must review the personal
circumstances
of a child who wishes to participate in an artistic performance
before granting or denying permission.
B. Adjudication
1. The best interests of the child
- As
noted, until the mid1990s, and sometimes today, the “best interests of the
child” was a cornerstone of judicial rhetoric
regarding children in
Israeli adjudication. A typical example may be found in the words of Judge
Menahem Allon:
“It appears that there is no longer a need to expand upon the principle
of the ‘best interests of the child’ as
a decisive consideration
when examining matters of custody and education, if the parents are in dispute
or in absentia, or are incapable
of caring for their children, and also in the
matter of adoption. This principle is ancient, and is rooted in Jewish law...
accepted
as exalted in the rulings of Civil and Rabbinic Courts since time
immemorial, and usually their sole consideration” ((Petition
to the) High
Court of Justice 7/83 Briars v. Haifa Region Rabbinic Court,
P.D. 38(1) 673).
- In
the same spirit, it has been said that “there are no judicial matters
concerning minors, in which the best interest of the
minor is not the first and
the primary consideration”. In many cases, the courts do not shy away
from creative interpretation
that is in line with this forceful rhetoric, as
evidenced by Supreme Court rulings concerning the verdicts of Rabbinic Courts,
which
in Israel are authorized to adjudicate aspects of family law, subject to
the surveillance of the Supreme Court. For example, the
Supreme Court has
required the Rabbinic Courts to adhere to section 25 of the Guardianship and
Legal Capacity Law 1962, which stipulates
that in the absence of an agreement
between parents who live apart, the guardianship of their child will be
determined on the basis
of “the best interests of the child”. (See
for example, (Petition to the) High Court of Justice 1842/92 Blaugrund
v. Chief Rabbinic Court, Jerusalem, P.D. 46(3) 423.)
- Although
the Rabbinic Courts do not dispute adherence to the principle of the best
interests of the child, it must be remembered that
these courts view the best
interests of the child in light of religious values, according to which a
child’s best interest
is served by his receiving a religious education.
It is therefore not uncommon for a religious court to rule that a child remain
in the custody of a parent who is capable of giving him such an education. This
approach is not acceptable to the Supreme Court.
To illustrate, one Supreme
Court judge has written:
“In vain I searched the arguments of the Rabbinic Court for factual
evidence regarding the cardinal question of the best interests
of the child. It
is difficult to escape the clear impression that the only consideration guiding
the court was that the father would
impart Jewish values to his children, an
education that is, in his words, ‘spiritual and moral’, while the
mother would
provide a secular education, which is not legitimate in the
court’s eyes. Of course, one must not make light of this consideration;
surely, its importance in the eyes of the Rabbinic Court is sufficiently great.
Nevertheless, as a sole consideration, and without
inquiring which of the two
parents is blessed with more traits appropriate to childraising, or which of
them has the material means
to meet their children’s essential needs, it
is not sufficient, nor does it comply with the stipulations of the legislator
... Thus, although the rabbinic judges were generally aware that the locus of
custody should be determined according to the ‘best
interests of the
child’, in effect, they closed their eyes to all considerations but one in
this matter, which is that the
father would raise them at the feet of the
Torah” [emphasis in the original] ((Petition to the) High Court of
Justice 181/81
Mor v. Haifa Region Rabbinic Court,
P.D. 47(3) 94).
- In
fact, the Supreme Court has often overturned Rabbinic Court rulings in which the
religious consideration, though weighed alongside
other considerations, was the
one that tipped the scales. In such cases, when it becomes clear that
“through the window of
the ‘best interests of the child’ we
view doctrines and laws that do not necessarily obtain from the best interests
of
the child”, the Supreme Court is likely to reject the Rabbinic Court
ruling and in its stead rule in favor of the best interests
of the child as it
perceives this, without giving independent, significant weight to the
religiousness of the education the child
will receive.
- Another
example of consideration of the best interests of the child is provided by a
recent case in which the Family Court in Jerusalem
rejected a plea to conduct a
tissuetyping test for the purpose of negating paternity of a nineyearold child.
It based its ruling
on the belief that the “minor can, at his age,
understand a claim of child support on his behalf, but cannot understand,
without
it devastating the foundation of his existence, that his father disputes
his paternity”. (Family Court Case (Jerusalem) 12980/97
Anonymous
Plaintiff v. Anonymous Defendant (10.11.98).)
- Nevertheless,
in some matters the rights of the parents or the interests of society are
considered in addition to the “best
interests of the child”. Thus,
for example, the best interest of the child is not, in itself, a cause for
adoption. In a
series of rulings, the Supreme Court determined that even if
adoptive parents are likely to be better parents than a child’s
biological
parents, this does not constitute sufficient cause to remove the child from the
custody of his biological parents (see
Civil Appeal 623/80 Anonymous
Plaintiff v. Attorney General,
P.D. 45(2) 72). Rather, it is permissible to place a child up for
adoption only when there is cause
for adoption, for example, when the
biological parents are unable to provide sufficiently for the child. In any
case, it is clear
that the child’s best interests are the decisive
consideration when there is cause for adoption.
- Another
example is provided by the policy of social integration into the education
system. In accordance with this policy, children
are deliberately placed in
schools with the aim of raising the level of the schools in each region to a
given standard, preventing
the flight of students from weaker to more affluent
areas, and integrating students from different ethnic and economic backgrounds
((Petition to the) High Court of Justice 595/88 Schulman v. Director of
the Tel Aviv Board of Education, P.D. 52(3) 594). Sometimes, children
are placed in a school in accordance with the policy of integration and in
defiance of their
wishes and those of their parents; the claim has been made
that this is a breach of their interests. In this matter the Supreme
Court has
ruled that the “best interests of the child” are not an exclusive
consideration, but rather represent only
one consideration to be weighed
alongside “the best interests of the public and its reform”, which
are reflected in the
policy of integration. (See (Petition to the) High Court
of Justice 421/77 Nir v. Beer Yaakov Regional Council,
P.D. 32(2) 253.)
- The
perception of the “best interests of the child” has also not yet
achieved a stable position in the judicial debate
over current fertility
technologies, such as invitro fertilization, sperm donation, and surrogate
mothers. For example, when the
Supreme Court debated the fate of fertilized ova
in a case in which a husband refused to continue the embryonic process, the
court
weighed many considerations, but only one of the 11 judges who sat in the
additional and decisive hearing in this case raised the
issue of the “best
interest” of the child who would be born into a singleparent family.
However, even this judge stated
that he could not rule in the matter, because of
the impossibility of determining whether it was better for a child not to be
born
at all than to be born into a singleparent family: “The answer to
the question of whether nonexistence is preferable to existence
lies in the
realms of philosophy and ethics; the helplessness of the court to resolve it is
clear” (Additional Civil Appeal
2401/95 Nahmani v. Nahmani,
P.D. 50(4) 661). Even in the initial hearing held in the Supreme Court in
this matter, only one judge addressed this consideration,
stating that
“given the reality we live in and the personal circumstances of Ruti
Nahmani [the claimant], I would not give
weight to the “best interests of
the child” and deny what she has requested solely for that reason”
[emphasis in
the original] (Civil Appeal 5587/93 Nahmani v. Nahmani,
P.D. 49(1) 458, p. 521).
C. The dignity of children
- In
the mid1990s, the Supreme Court began debating the issue of a child’s
right to dignity.
- The
increased use of the term “the right to dignity” in matters
concerning children may be ascribed to passage of the
Basic Law: Human Dignity
and Liberty, which sets constitutional statutes for the protection of human
rights, at the core of which
is respect for human dignity. This fundamental law
has been given crucial symbolic and practical significance by the Israeli
justice
system. It has also had a great deal of influence on rulings concerning
children.
- For
example, a Supreme Court decision to disqualify an agreement between parents
which would have relieved the father of responsibility
for child support
payments was based on the court’s belief that the agreement was an affront
to the child’s dignity (see
Civil Appeal 5464 Anonymous Plaintiff
v. Anonymous Defendant (Minor), P.D. 48(3) 857). The right to
dignity was also the basis of a recent Supreme Court ruling that overturned an
old law, which permitted
corporal punishment of children for educational
purposes (Criminal Appeal 5224/97 State of Israel v. Sde Or
(20.7.98, not yet published); Criminal Appeal 96/98 45 Anonymous Plaintiff
v. State of Israel (25.1.00 not yet published)). In the spirit of that
ruling, a clause of the Civil Wrongs Ordinance was recently annulled by the
Knesset, which had granted immunity to parents, guardians and teachers who
practiced corporal punishment on a minor “to the
degree reasonably
necessary to mend his ways”. Another important example of the Supreme
Court’s belief in a child’s
right to dignity was proved by its
finding a creative interpretation that allowed it to “circumvent” a
law that would
have prevented a child’s right to know the identity of his
parents. Thus one Supreme Court judge who sat in that case tied
human dignity,
as protected by the Basic Law: Human Dignity and Liberty, with natural
law:
“The dignity of a man trumpets free will and choice. ... a man who
wishes to know who his father is, who his mother is, where
he comes from who
shouts, ‘who am I?’ does his dignity not live?
It is difficult very difficult to accept such a law. Not for naught have
we spoken of natural law, which took the form of human
dignity in the Basic Law:
Human Dignity and Liberty” (Civil Appeal 3077/90 Anonymous Plaintiff
v. Anonymous Defendant, P.D. 49(2) 578, p. 593).
- Similarly,
the Family Court in Jerusalem based its ruling on the right to human dignity
when it respected the wishes of two girls
age 10 and 13 to emigrate from Israel
with their mother. The court stated that “we may not, barring exceptional
or compelling
circumstances, force an older child with mature will and
understanding to remain with one parent, when his clear and absolute desire
is
to be with the other parent” (Family Court Case (Jerusalem) 14622/97
Anonymous Plaintiff v. Anonymous Defendant (31.8.98)). In this
ruling, the court also based itself on the UN Convention, which addresses both
the best interests of the child
and the child’s will. In 1998, the same
court accepted the claim of a 16yearold minor who wished to go abroad during
summer
vacation with the youth movement in which she was active, despite the
objection of her father, who believed that the trip would harm
his
daughter’s studies. This ruling, too, was based the child’s
constitutional right to human dignity.
- Even
if we claim that defending the dignity of children is compatible with their best
interests, the change in rhetoric and terminology
has implications for the
future, and signals an important change of emphasis: The essence of the concept
“the best interests
of the child” is paternalistic. The essence of
the concept “the dignity of the child” is the recognition that
children are autonomous and thus have the fundamental right to dignity a right
which may conflict with paternalistic concerns.
D. The rights of children
- The
concept of “children’s rights” as an independent discipline
first appeared in Israeli Supreme Court rulings
in the mid1990s (Civil Appeal
2266/93 Anonymous Plaintiff (Minor) v. Anonymous Defendant,
P.D. 49(1) 227). The test case was one in which the Supreme Court was
asked to rule in the matter of the religious education of
children of parents
who had separated because the mother had become a Jehovah’s Witness. The
children remained with their
mother, who wished to educate them according to the
beliefs of the Jehovah’s Witnesses. The father objected, demanding that
the children receive a Jewish education. The chief justice of the Supreme
Court, Meir Shamgar, suggested ruling in the matter on
the basis of the
child’s rights. He described the relationship between a child’s
rights and his “best interests”
as follows:
“The ‘rights of the child’ do not supercede the ‘best
interests of the child’. On the contrary: The
concept of
‘rights’ is broader than that of one’s ‘best
interests’, and subsumes it. What is remarkable
in our turning to the
rights of the child is that the ‘best interests of the child’ is a
subjective emotional concept,
which requires the judgment and factual evaluation
of the court in each specific instance, while the ‘rights of the
child’
is a normativelegal concept that relies on a familiar, established
system of rights which is, of course, also guided by the aspiration
to realize
the best interests of the child. ...The test of the rights of the child anchors
the autonomy of children’s rights
in the obligation to recognize and
respect them. The best interests of the child is assumed by the recognition and
respect of his
rights. It is difficult to imagine that acknowledgement and
respect of a child’s rights would not be in his best interests,
or that a
child’s best interests could be conditional upon ignoring his other
constitutional and legal rights. ... In cases
involving a child’s
fundamental constitutional rights, the appropriate mechanism for the court is
that of the rights of the
child; the best interests of the child alone will not
suffice to express the interests of the child in a dispute” (op. cit.
254,
260).
- Chief
Justice Shamgar also stressed the autonomy of the rights of the child, as
distinct from the rights of the parent:
“The concept the ‘rights of the child’ teaches us that
children have rights. In essence, this concept erects a
protective
constitutional shelter over the child. It expresses the recognition that he has
rights; the integrity of these rights
also guarantees the fulfillment of his
best interests. As a measure for resolving custody disputes or disputes between
parents,
this concept expresses the view that a child is an autonomous being
with rights and interests that are independent of those of his
parents. While
the extent of these rights is liable to be narrower than that of adults, this
does not mean that the rug should be
pulled out from under the fundamental
assumption that children have rights.”
- Given
that the children had been raised and educated as Jews and did not express any
desire to join the sect of which their mother
was a member, Chief Justice
Shamgar ruled that it was their right to continue to be educated as Jews until
they were capable of deciding
otherwise even though by thus strengthening the
children’s position, he risked unsettling the autonomy of the family and
weakening
it.
- Although
the other judges who heard the case concurred with the chief justice, only one
of them made an argument based on the same
principles. The other three judges
expressed the opinion that the test of the “best interests of the
child” took precedence,
stating that in any case in which the desired
outcome based on the child’s best interests contradicts the desired
outcome based
on the child’s rights, the child’s best interests
should hold sway. Nevertheless, even these judges did not dispute
the
importance of recognizing the principle of children’s
rights.
- Since
that ruling, and perhaps in its wake, awareness has grown in Israel of the
autonomy of children’s rights. Legal debate
has intensified regarding the
significance of recognizing children’s rights and the discrepancies
between their rights and
their best interests (Application for Civil Appeal
2043/98 Amin v. Amin (4.10.99 not yet published)). For example, the
Supreme Court approved a ruling of the Tel AvivJaffa District Court apparently
the
first of its kind in the world that placed liability for damages on a
father who had disowned his children, and thereby caused them
emotional pain and
suffering. The court ruled thus, although it acknowledged the sensitivity of
the issue and the need to avoid
inappropriate infringement of a parent’s
autonomy. In so doing, the court recognized children as having rights of their
own.
In a similar spirit, in a May 1999 ruling based on the Court for
Family Matters Law 1995, the Family Court in Tel AvivJaffa recognized
the right
of a minor age 11 to separate representation by an attorney who would serve as
her guardian in legal matters, in conflicts
between her divorced parents. In
this case, the court based itself on article 12(1) of the Convention, which
requires enabling a
child to be heard, directly or indirectly, in any judicial
matter concerning him (Family Court Case (Tel Aviv) 23860/96 Anonymous
Plaintiff v. Anonymous Defendant and Others (not yet
published)).
E. Summary
- The
fundamental principles declared in the introduction to the UN Convention on the
Rights of the Child (hereinafter: the Convention)
including the recognition of
childhood as deserving special attention, support, and legal protection, and of
the crucial importance
of the family environment to the growth and development
of children are also the fundamental principles on which laws concerning
children are based in Israel. Furthermore, the central principles expressed in
the articles of the Convention are compatible with
the principles underlying
Israeli law. As described above, these shared principles include the obligation
to act in accordance with
the best interests of the child as a primary
consideration, and the frequent concern with the rights and obligations of
parents.
- Indeed,
Israel’s courts both the Supreme and the Lower Courts, including Family
Courts have cited the Convention and based
rulings upon it. For example,
the Supreme Court’s understanding of the essence of children’s
rights is based on the
Convention, as indicated by its ruling in favor of the
plaintiff in the paternity suit of a Moslem girl, which was based on a
child’s
right to know his parents, as stipulated by article 7 of the
Convention (Civil Appeal 3077/9 Anonymous Plaintiff (Hemda) and Others
v. Anonymous Defendant (Yunis), P.D. 49/2 578). In two other
rulings, the court based itself on the Convention’s prohibition against
the use of corporal
punishment in children’s education. In this matter,
the court wrote:
“Recognition of a child’s right to protection of the integrity of
his body and mind is distinctly stated in the UN Convention
on the Rights of the
Child. ...The Convention expressly forbids the use of physical or emotional
violence toward children, and requires
the States Parties to take steps to
prevent violence against children” (Criminal Appeal 4596/98
Anonymous Plaintiff v. State of Israel, P.D. 54(1) 145,
p. 185).
- In
a number of rulings, the District Court of Tel AvivJaffa also based itself on
the Convention, stating that the Convention is “a
source of great
importance” (see for example Criminal Case (Tel AvivJaffa) 64/96 State
of Israel v. Anonymous Defendant (not yet published); Criminal Case
(Tel AvivJaffa) 511/95 State of Israel v. Anonymous Defendant (not
yet published)). In another instance, the Family Court in Tel Aviv prohibited
the parents of twins, who were born to a surrogate
mother in Israel, from
relating their experiences in a television movie. The judge ruled that the
children’s right to privacy
a right anchored in the Convention takes
precedence over the parents’ right to publish (Family Court Case (Tel
Aviv) 4570/98
Anonymous Plaintiff and Others v. Attorney General
(not yet published)). In yet another case, the District Court in Tel AvivJaffa
used the Convention as a basis for an interpretation
of the law, which
emphasized the right of children of parents who have separated to maintain
contact with both parents and, derivative
thereof, the right of children to be
heard by the court before the court rules on their custody (Family Court Appeal
(Tel AvivJaffa)
33/96 Anonymous Plaintiff v. Anonymous Defendant
(not yet published)). The Family Court in Jerusalem rejected the petition of a
mother to change the name of her minor son; it based
its decision on the
Convention’s stipulation that children have separate rights in this
matter. In another case, the Family
Court in Jerusalem cautioned that Israeli
law regarding a child’s right to be heard in legal proceedings does not
fully comply
with the statutes of the Convention, and should be changed
accordingly (Family Court Case (Jerusalem) 19530/97 Anonymous Plaintiff
v. Anonymous Defendant (not yet published)).
- There
are a few other principles outlined in the Convention that have not yet been
fully grounded in Israeli law. We refer primarily
to the principles set down in
articles 12 and 27 of the Convention. Article 12 of the Convention stipulates
that a child who is
capable of expressing his opinion must be given the right to
freely express that opinion in any matter concerning him, and that his
opinion
must be given due weight in accordance with his age and maturity. Article 12
also stipulates that children be heard in any
administrative or legal proceeding
that concerns them directly or indirectly. Current law in Israel arranges the
right of a child
to be heard and his opinion to be considered in certain matters
that concern him. For example, section 149g of the Municipalities
Ordinance
cited above, which was amended in 2000, stipulates that representatives of
student and youth movement councils serve on
local and municipal committees for
the advancement of children. (See also the Youth Employment Law as it addresses
the hearing of
children and the Pupils’ Rights Law 2000 in this matter.)
However, while current legislative initiatives address specific aspects
of a
child’s right to be heard, there is as yet no general order in this
matter, and the practice of allowing children to be
heard is not
consistent.
- Article
27 of the Convention stipulates the right of a child to a standard of living
appropriate to his level of development, the
obligation of his parent in this
regard, and the obligation of the State to assist his parents in this regard by
providing material
assistance when necessary. This article (as well as articles
25, 26, ff.) ensures the child’s social and economic rights.
Indeed, the
UN Convention on the Rights of the Child, perhaps more than any other
international convention, is outstanding in its
integration of civil and
political rights with social and economic rights. Nevertheless, in Israel, such
integration is not a fait
accompli. Public debate still rages over the role of
social rights in the tapestry of human rights. Moreover, rights that have
not
yet been fully recognized for adults remain incomplete for children, as
well.
- Additional,
special problems arise in Israel as a result of its multireligious and
multiethnic population. A prime example of this
is the variety of types of
education offered in Israel. Alongside State education and State religious
education systems, there are
private, churchaffiliated and private,
ultraorthodox Jewish institutions. Such institutions are relatively autonomous;
children
may attend them on the prerogative of their parents. Some claim that
ultraorthodox Jewish institutions in particular, which focus
on religious
studies, do not provide the basic secular studies that prepare students to
function in the modern world, and consequently
put them at a disadvantage
socially and economically. Article 29 of the UN Convention addresses the
tension between the aspiration
toward cultural freedom, for parents, and the
need to protect the rights and best interests of children; however, it is
doubtful
whether the stipulations of this article resolve the
tension.
- Lastly,
like other countries with developed economies, Israel attracts foreign workers.
These foreign workers (and their children),
some of whom remain in Israel
illegally, are eligible for the same basic human rights as are citizens and
legal permanent residents.
While certain rights such as the right to free
education are provided, at least in part, to the children of foreign workers,
many
others are denied them, regardless of their parents’ legal status.
III. GENERAL MEASURES OF IMPLEMENTATION
- This
chapter addresses the steps that have been taken by the State of Israel to
implement the UN Convention on the Rights of the Child.
First, we will describe
the legal status of the Convention, and describe the parliamentary activity
undertaken to promote it. Then
we will discuss the means used by national and
local government authorities to comply with article 4 of the Convention,
including
the allocation of resources to protect the economic, social and
cultural rights of children. Lastly, we will cite the nongovernment
and
government organizations that disseminate the rights of the child among children
and adults alike, in compliance with article
42 of the
Convention.
Articles 4, 42 and 44 (6) of the Convention
1. The status of the Convention in Israeli law
(a) The Convention’s ratification and legal
status
- The
United Nations (UN) Convention on the Rights of the Child was signed by the
State of Israel on 3 July 1990 and ratified by the
Knesset on 4 August 1991; it
went into effect on 2 November 1991. Although the Convention does not
have the status of law, it is
often cited in rulings of both the supreme and the
lower courts as a legal source and a basis of interpretation (for further
detail,
see Chapter II). Table 1 gives examples of rulings that were based on
the tenets of the Convention.
- The
interpretive authority granted the Convention by its ratification reflects the
State’s commitment to making its laws and
legal norms congruent to the
Convention. A Supreme Court judge has written that the law should be
interpreted and enforced in a
manner compatible with the Convention, deviating
from the Convention in exceptional cases only. It should be noted that her two
colleagues left this matter open to further study (Criminal Appeal 3112/94
Abu Hassan v. State of Israel (11.2.99. not yet published)). In
another ruling, the Supreme Court determined that adherence to an international
convention, which
assumes mutuality, requires its uniform interpretation by all
signatory countries. In December 2000, the Pupils’ Rights Law
2000 was
passed. The first section of the law stipulates that the law’s aim is to
determine the “principles for the
rights of the student, in the spirit of
human dignity and the principles of the UN Convention on the Rights of the
Child”.
- The
State of Israel is also a signatory to other international conventions
concerning children. For example, since 1953, Israel has
been a party to
conventions of the International Labor Organization (ILO), primarily the
Convention Concerning Medical Examination
of Children and Young Persons in
Nonindustrial Occupations (No. 78, 1946); the Convention Concerning Medical
Examination for Fitness
for Employment in Industry of Children and Young Persons
(No. 77, 1946); the Convention Concerning Night Work for Children and Young
Persons in Industrial and Nonindustrial Occupations (No. 90,1948 and
No. 79, 1949). Since 1980, Israel has been a party to the
International
Labor Convention Concerning Minimum Age for Admission to
Employment (No. 138, 1973). In addition, Israel is a party to the Hague
Convention on International Private Law. Since 1991, Israel has been a party to
the Hague Convention Concerning Civil Aspects of
Child Kidnapping (No. 513
XXVIII, 1980), and since 1995, Israel has been a party to the Hague
Convention Concerning the Protection
of Children and Cooperation in Respect of
Intercountry Adoption (1993).
Table 2
Court rulings based on articles of the Convention on the Rights
of the Child
|
Article of the Convention
|
Supreme Court Cases Criminal Appeal. 4596/98 Anonymous
Plaintiff v. State of Israel, P.D. 54(1) 145
|
9(1)
|
Civil Appeal 93/2266 Anonymous Plaintiff v. Anonymous
Defendant, P.D. 49 (1) 221
|
3, 14
|
Criminal Appeal 3112/94 Abu Hassan v. State of Israel,
P.D. 53(1) 427
|
37(a)
|
(Petition to the) High Court of Justice 1554/95 “SHOHAREY
G.I.L.A.T.” v. Minister of Education, P.D. 50(3) 2
|
28
|
Additional Civil Appeal 7015/94 Attorney General v. Anonymous
Defendant, P.D. 50(1) 48
|
13(1)
|
Civil Appeal 3077/90 Anonymous Plaintiff v. Anonymous
Defendant, P.D. 49(2) 578
|
7
|
Table 2 (continued)
|
Article of the Convention
|
Criminal Appeal 5224/97 State of Israel v. Sde Or (not yet
published)
|
19(1)
|
(Petition to the) High Court of Justice 5227/97 David
v. Rabbinic High Court Jerusalem (not yet published)
|
3
|
District Court Cases
|
|
Criminal Case (Tel Aviv) 40069/00 State of Israel v. Anonymous
Defendant (not yet published)
|
12
|
Family Court Appeal (Tel Aviv) 3/98 Biton v. Biton, 50048 98(3)
2509
|
12
|
Family Court Appeal (Tel Aviv) 90/97 Moran v. Moran (not yet
published)
|
12
|
Civil Appeal 3275/98 Child Protection Officer v. Anonymous
Defendant (not yet published)
|
6, 12
|
Family Court Appeal (Tel Aviv) 1009/00 Anonymous Plaintiff
v. Anonymous Defendant (not yet published)
|
12
|
Family Court Appeal (Tel Aviv) 3/99, 4/99 Anonymous Defendants
v. Attorney General (not yet published)
|
3
|
Family Court Appeal (Tel Aviv) 36/96 Anonymous Defendants
v. Attorney General (not yet published)
|
16
|
Family Court Appeal (Tel Aviv) 1010/98 Keshet v. Keshet (not
yet published)
|
3
|
Family Court Appeal (Tel Aviv) 33/96 Deutsch v. Deutsch
50048 97(2) 1567
|
9, 7(2), 10(2), 18
|
Family Court Appeal (Tel Aviv) 1125/99 Anonymous Plaintiff
v. Anonymous Defendant (not yet published)
|
9, 7(2), 10(2), 18
|
Criminal Case (Tel Aviv) 40006/00 (not yet published)
|
37b
|
Family Court
|
|
Family Court Case 94300/90 (not yet published)
|
12
|
Family Court Case (Tel Aviv) 23860/96 Anonymous Plaintiff
v. Anonymous Defendant 50048 96(2)
|
12
|
Family Court Case (Jerusalem) 2030/97 Anonymous Plaintiff
v. Anonymous Defendant 50048 98(2), 81
|
12
|
Family Court Case (Tel Aviv) 23200/96 Anonymous Plaintiff
v. Anonymous Defendant 50048 96(2)
|
Preamble
|
Family Court Case (Beer Sheva) 10101/98 Judicial Review 251,
p. 15
|
7(11), 7(2)
|
(b) The Committee to Examine Fundamental Principles
Concerning Children and the Law, and Their Implementation in
Legislation
- In
June 1997, the Minister of Justice appointed a “committee to examine
fundamental principles concerning children and the law,
and their implementation
in legislation”. The minister appointed this committee to thoroughly
examine Israeli law concerning
the rights of the child and the
child’s legal and welfare status, in light of the principles set down in
the UN Convention
on the Rights of the Child. The committee was asked
to examine the need for legislation, including amendments to current laws, so
that the State could meet its commitment to the Convention. It was also asked
to assess the need to write an integrative law regarding
the status of children
and youth, in light of the Convention and on the basis of a comprehensive,
uniform perspective. The committee
was further asked to examine the necessity
of establishing agencies and mechanisms to implement, coordinate and regulate
fulfillment
of the rights of the child, as outlined in the
Convention.
- This
committee comprises senior public and other officials from a variety of fields,
including the court system, the Ministry of Justice,
the Ministry of Labor and
Social Affairs, departments of social work, law and psychology of the
universities, the system of mental
health services for children, the Council for
Child Welfare, and the Israel Bar Association. To date, five subcommittees have
been
established, which address the continuum of child protection, outofhome
placement, the child in the family, education, and the child
in criminal
proceedings.
- In
1999, a project was implemented concurrent with the committee’s work,
whose goal was to hear the views children, according
to article 12 of the
Convention. This project is being evaluated.
(c) Parliamentary activity
(i) Knesset members’ lobby for children
- The
first goal of this lobby is to promote legislation concerning the rights of the
child. To this end, it coordinates proposed laws
concerning children; monitors
the status of tabled laws and the publication of reports; promotes proposed laws
by lobbying the heads
of relevant committees; reminds Knesset members to promote
laws they have proposed; and increases Knesset members’ awareness
of the
lobby’s support of proposed laws concerning children. Furthermore, in
19971998, the lobby initiated 21 proposals for
legislation.
- In
addition to its legislative activity, during the 14th Knesset the lobby
organized site visits for Knesset members (e.g., to a juvenile
detention hall, a
school attended by the children of foreign workers, and a summer camp for
disabled children), met on budget issues,
observed “Convention on the
Rights of the Child Day” in the Knesset, raised nine laws for debate
before the plenum in
one month alone (November 1997), organized a conference and
participated in oneday conferences, and hosted guests from Israel and
abroad.
- The
lobby also cooperates with relevant voluntary organizations, for example on
oneday conferences like that held on the initiative
of the National Council for
the Child. This conference, titled, “Children in Israel 1998: Fifty
Years of Activity, Another
50 Years of Commitment”, held at the Knesset in
July 1998 during the State’s jubilee, addressed the current situation
and
trends for the future regarding children and the law, welfare, health, and
education. Lecturers included government ministers,
chairpersons of relevant
parliamentary committees, professionals from public agencies (including the
National Council for the Child),
and representatives of youth. The lobby
organized a questionandanswer session for youth council representatives with
ministers and
Knesset members.
(ii) Proposed bills on the rights of the child
- A
number of proposed bills (tabled in 1993, 1996 and 1997) sought to grant Section
I (articles 141) of the Convention legal standing.
Their proposal led to
extensive discussion in the Knesset, which revealed the State’s commitment
to the principles of the
Convention, while reiterating that the Convention
itself need not be made law. Following the establishment of the committee to
examine
fundamental principles concerning children and the law and their
implementation in legislation (cited above), the Knesset members
who had
proposed these bills decided to shelve the proposals for the time being. In
early 1997, a discussion was held in the committee
on early childhood, which is
a joint subcommittee of the labor and welfare and the education and culture
committees. Representatives
of the Ministry of Justice, the National Council
for the Child, Defense for Children International (DCI), and the Ministry of
Labor
and Social Affairs attended this discussion. The committee reported that
“although six or more years have passed since [the
Convention’s]
ratification, the Convention’s principles and recommendations do not have
sufficient influence on the living
conditions and rights of children in Israel.
... the authorities of the State of Israel are still coping with implementing
the Convention
on the Rights of the Child, even though some of its articles
reflect the spirit in which the State itself acts on behalf of
children”.
- The
work of this committee led to the establishment in July 1999 of a Knesset
committee for the advancement of the status of the child,
whose task it would be
to comprehensively and holistically address issues concerning children,
including their rights as outlined
by the Convention. During its first year of
activity, this committee (which was open to student council representatives),
drafted
three bills: one that would establish in every municipality and local
authority of a permanent committee to promote the child; one
that would
establish rehabilitative day care centers for disabled and retarded children;
and one that would ensure the placement
of a young child at risk in a day care
center. The committee discussed the health and welfare of children, problems in
education,
problems arising from the gaps in service provision to Arab children,
emphasizing violence against children and among youth, the
importance of early
childhood, and the rights of children in the legal system. In addition, the
committee organized discussions
in the Knesset on children’s rights as a
human right, literature and children, safety devices, and violence among youth,
which
were attended by hundreds of students, representatives of government
ministries and voluntary organizations.
- The
Knesset is very active on behalf of children, establishing ad hoc committees on
pressing issues, such as violence among youth.
Recently, Knesset committees and
the National Student Council have been working to establish a body of youth
representatives (“the
young legislator”) that will monitor the
discussions of most Knesset committees.
(iii) Adaptation of laws
- Recent
years have seen extensive legislative activity on behalf of children (see
Tables 2, 3 and 4). Many new bills and amendments
to existing laws
have been proposed, some of which have been ratified, some of which have been
rejected, and some of which are still
being debated in the relevant government
ministries (for example, an initiative for comprehensive reform of the Youth
(Trial, Punishment
and Modes of Treatment) Law, and a proposed bill protecting
the eligibility of children at risk for services).
Table 3
Laws enacted during the past 10 years
|
Year
|
Relevant article of the Convention
|
Special Education
|
1988
|
23: the right of the disabled child to special education
|
Prevention of Family Violence
|
1991
|
19: protection against abuse
|
Hague Convention
|
1991
|
3: the best interests of the child
11: prevention of illegal transfer
12: respect for the child’s opinion
|
Consumer Protection (Advertisements to Minors)
|
1991
|
36: protection against undue advantage
17: protection against exposure to harmful information
|
Single Parent Families
|
1992
|
27: the right to a reasonable standard of living
|
Children’s Sick Days
|
1993
|
18: both parents have responsibility for raising the child, and the Sate
will provide appropriate assistance; children of working
parents will have the
right to benefit from child care services
|
Court for Family Matters
|
1995
|
3: the best interests of the child
5: guidance and instruction of parents
|
Table 3 (continued)
|
Law
|
Year
|
Relevant article of the Convention
|
Detection of the AIDS Virus in Minors
|
1996
|
16: protection of privacy
23: recognition of the right to live with dignity of children with
impaired health
24: the right to a high level of health and health services
|
Public Defense
|
1995
|
37(d): the right to representation at incarceration and
trial/legal proceedings
|
Treatment of Mentally Ill
|
1991
|
12: the right to be heard
23: treatment for mentally ill children
|
Extended School Day and Educational Enrichment
|
1997
|
28: the right to equal opportunities in education
|
Rehabilitative Daycare Centers
|
2000
|
6: the right to development
23: treatment for disabled children
2: nondiscrimination
|
Students’ Rights
|
2000
|
12: the right to be heard
16: protection of privacy
|
Table 4
Amendments to laws enacted during the past 10
years
|
Year
|
Relevant article of the Convention
|
Amendment to the Penal Law: Increased Severity of Punishment of Relatives
Who Harm Children; Obligatory Reporting
|
1989
|
19: protection against abuse and neglect
|
Amendment to the Law: Evidence Ordinance Revision (Protection of Children)
Expansion to Crimes of Assault and Abuse
|
1991
|
36: prevention of undue advantage
|
Table 4 (continued)
|
Amendment to the Law
|
Year
|
Relevant article of the Convention
|
Amendment to the Youth Law: Obligation to Hear Minors, Parents and
Guardians
|
1995
|
5: guidance to parents 12: respect for the child’s
view
|
Amendment to the Penal Law: Taking Evidence Immediately
|
1995
|
40: protection of children in the juvenile court system
|
Amendment to the Penal Law: Statute of Limitations on Sexual Crimes
against Children
|
1996
|
19 and 34: protection against sexual assault and
abuse
|
Amendment to the National Insurance Law: Cancellation of the Reduction in
Children’s Benefits
|
1997
|
26: the right to social security 27: the right to a reasonable
standard of living
|
Amendment to the Single Parent Families Law: Children’s Benefits up
to Age 21
|
1997
|
26: the right to social security 27: the right to a reasonable
standard of living
|
Amendment to the Adoption of Children Law: International Adoption
Agreement Permit for Adoption of Children by Parents of a Different
Religion
|
1997
|
11: prevention of illegal transfer 21: adoption for the best
interests of the child with permission of the authorities
|
Amendment to the Youth Employment Law
|
1998
|
32: protection of working children 12: participation 36:
protection against undue advantage
|
Amendment to the Youth (Care and Supervision) Law: Sanction against the
Publication of Information about Crime Victims
|
1998
|
16: the right to privacy
|
Amendment to the Municipalities Ordinance
|
2000
|
2: equal fulfillment of rights stipulated by the
Convention 3: the best interests of the child 12: the right to be
heard 13: freedom of expression
|
Table 5
Proposed bills in advanced stages of ratification
|
Year
|
Relevant article of the Convention
|
Youth Employment Law (Amendment No. 11) Head of Public Agency
Obligation
|
2000
|
32
|
Penal Law (Amendment No. 55) Imposition of Minimum Punishment on
Relative for Injury with Serious Intent
|
2000
|
19
|
Protection of Genetic Information Law
|
1998
|
16
|
2. Implementation of the Convention by national and local
government
- This
section presents the administrative mechanisms that advance the rights of the
child in Israel, through concern for his welfare,
wellbeing and needs, and
through data collection and research, as stipulated by article 4 of the
Convention.
(a) Initiatives of government ministries
- Although
no specific mechanisms for implementing the Convention have been established by
the government, since ratification of the
Convention, government ministries have
initiated many changes that are compatible with the Convention’s
principles. These
initiatives are described in this report, as follows: for
initiatives of the Ministry of Labor and Social Affairs, see the chapter
on the
family environment (Chapter VII); for initiatives of the Ministry of Education,
see the chapter on education and recreation
(Chapter IX); for initiatives of the
Ministry of Health, see the chapter on health and welfare (Chapter VIII); and
for initiatives
of the Ministry of Justice and the Ministry of Public Security,
see the chapter on special protection measures (Chapter X).
(b) Data collection and research as a basis of
children’s rights
(i) Public agencies
- A
number of public agencies regularly publish information about children and
youth, in the framework of the information they provide
on the general
population of Israel. The following agencies are among them.
- The
Central Bureau of Statistics collects a great deal of data on children as part
of the many surveys it conducts. Some of these
data are published annually in
the Statistical Abstract of Israel, which includes data on the living
conditions of children. The Abstract also presents data on the percentage of
children in the
population, household composition, birth rates and infant
mortality, secure housing and youth probation services, education, morbidity,
and social security. The Central Bureau of Statistics also produces special
publications and periodicals including the quarterly
New Statistical Activities
and Publications in Israel which include information on government and public
studies and which contain
information about children. In addition, the Central
Bureau of Statistics produces a series of publications on social indicators
in
fields such as education, health, and welfare, which contribute to current
knowledge about children. Recently an interministerial
forum on statistics
about children was established to coordinate government ministries and help in
the collection and publication
of data on children.
- The
National Insurance Institute publishes an annual report of its activities, which
includes an analysis of the effect of its various
programs. In the framework of
these annual reports, a series is published which presents annual data on
poverty, including the poverty
rates among children and families with children.
Occasionally, special issues are devoted to children. The Institute’s
sizable
research department also produces many studies on
children.
- A
number of departments in the government ministries that provide services to
children publish reports of their activities, as do
some of the local
authorities. However, these reports are not published regularly. Similarly,
since services do not have comprehensive
information systems, often these data
are partial or are not up to date. To compensate, government ministries may
conduct or commission
studies in their areas of activity, or maintain constant
reporting through the Central Bureau of Statistics (e.g., the series’
on
education or on juvenile delinquency).
- The
National Institute of the Ministry of Health finances studies in all areas of
health, including children’s health.
- The
Israel Center for Disease Control was recently established by the Ministry of
Health; it generates and disseminates current data
on health issues, including
those concerning children.
- The
Henrietta Szold Institute, under the auspices of the Ministry of Education,
conducts research on Israeli society, education and
behavior.
(ii) Nongovernment agencies
- The
following nongovernment agencies also generate information, which may be
relevant to the status and rights of children.
- The
Center for Social Policy Studies in Israel publishes an annual report analyzing
government expenditure on education, welfare and
health services, which
sometimes includes articles concerning children.
- The
Adva Center is concerned with issues of equality and disparity in Israeli
society, and periodically studies dimensions of equality.
The center devotes a
great deal of attention to issues pertaining to children and
minorities.
- The
Center for Research and Policy Design of the National Council for the Child was
established in 1991 as the applied research arm
of the Council. Among its many
activities, the center publishes the most complete statistical report on
children in Israel. This
statistical yearbook, The State of the Child in
Israel, which is published in cooperation with JDCIsrael, the JDCBrookdale
Institute
and government ministries, includes data from a variety of sources on
most aspects of children’s lives. The Council also publishes
a special
report on immigrant children.
- The
NCJW Research Institute for Innovation in Education of the National Council of
Jewish Women, under the auspices of the School
of Education of The Hebrew
University, conducts research on education, especially pertaining to the
reduction of gaps.
- The
Center for Children and Youth of the JDCBrookdale Institute was established to
generate and disseminate the applied information
necessary for the development
of policy and programs that promote the welfare and education of children and
youth. At present, the
center conducts research on services for children at
risk, children with disabilities, immigrant children and youth, health
promotion,
and youth leadership. The center also develops information
systems for children’s services as a basis for planning, policymaking
and
identifying children at risk. Center staff also identify, document and
disseminate successful approaches to and services for
children. The center
conducts separate studies of Arab children and youth, and cooperates with
professionals from the Arab sector
through a steering committee of Arab and
Jewish experts on children. The steering committee is presently setting
priorities for
the promotion of Arab children and youth, and is preparing a
comprehensive book on the subject.
- The
Minerva Center for Youth Studies was established in 1995 by the Minerva
Foundation in Germany, and is adjunct to the University
of Haifa. The
center’s goal is to study issues concerning children and youth that are of
interest to public policymakers.
Accordingly, the center studies the attitudes
and values of Jewish and Arab youth regarding democracy, the IsraeliArab
conflict,
minorities and immigrants, violence in the family, drug abuse,
juvenile delinquency and the like.
- The
Adler Center was established in 1997 by the School of Social Work of Tel Aviv
University. The center conducts research into children
at
risk.
- Sikkui
The Association for the Advancement of Equal Opportunities is a JewishArab
voluntary organization, which publishes an annual
report on the equal rights and
integration of Arabs. The annual report also contains information on children
and children’s
services.
(iii) Research into the Arab population
- All
of the above agencies study the entire population of children in Israel, both
Jews and Arabs. In addition, the following agencies
focus on the Arab
population.
- The
Galilee Society The Arab National Society for Health Research and Services
conducted a survey of Arab children with special needs.
The survey steering
committee recommended establishing an initial data base to map the agencies that
have data on children, particularly
those newborn to age seven, and helping to
formulate strategic interventions.
- In
1999, the Center for Bedouin Studies and Development, under the auspices of
BenGurion University of the Negev, published the first
statistical yearbook on
Bedouin in the Negev, which includes data on education, health and
welfare.
(iv) Research into the immigrant population
- The
following agency generates data on immigrant children.
- The
Israel Association for Ethiopian Jews (IAEJ) is a voluntary agency that promotes
the integration of Ethiopian immigrant students
into the education system and
into society. IAEJ collects data on aspects of the integration of Ethiopian
students, such as scholastic
achievements, dropout rates, eligibility for
matriculation, delinquency, and the interaction between the education system and
parents.
IAEJ publishes and disseminates its findings as a basis for action on
behalf of Ethiopian students.
(c) Mechanisms regulating implementation of the Convention
- As
yet, there is no specific mechanism for regulating the implementation of the UN
Convention on the Rights of the Child. Nevertheless,
the State
Comptroller’s Office publishes an annual report citing shortcomings in
government activities, including violations
of children’s rights. For
example, the 1995 State Comptroller’s report reviewed the functioning of
the regular school
attendance system, and found that tens of thousands of
children do not attend school, in part due to a lack of elementary education
frameworks for students with differing needs and levels. The 1993 State
Comptroller’s report reviewed how welfare agencies
handle the adoption of
children at risk. The report found that adoption procedures were unduly long,
and that there is no appropriate
followup of children in outofhome placements
(e.g., institutions) who have no contact with their families, and who might have
been
suitable for adoption. The 1992 State Comptroller’s report made a
thorough review of the discrepancies in educational inputs
between the Jewish
and Arab sectors. It found, for example, that fewer hours of educational
enrichment are provided in the Arab
sector, despite its lower level of
achievements.
(d) The efforts of public agencies to implement the
Convention
- Many
public bodies, including labor unions, work to implement the Convention. To
illustrate, we will describe the work of two such
unions the Israel
Teachers’ Union and the Israel Psychologists’
Union.
(i) The Israel Teachers’ Union
- Through
the Association of Teachers for the Advancement of Instruction and Education,
the Israel Teachers’ Union is implementing
a code of ethics for teachers.
The code includes 35 articles covering four issues, including that of
studentteacher relations.
The code requires teachers to treat students with
respect; to refrain from discriminating among students on the basis of race,
gender,
origin, political views, social status or any other reason; to be aware
of and sensitive to a student’s problems and work to
solve them; to assess
a student’s scholastic achievements on a professional, conscionable basis;
and to maintain confidentiality
regarding a student’s status. Under the
code, a teacher who is charged with assaulting a student can expect to have his
teachers’
license revoked, and a teacher who insults a student because of
his ethnic origin will be called to a disciplinary hearing.
- Several
years ago, a steering committee comprising senior educators and academics was
established to formulate an ethical code. Initially,
the committee conducted a
study so as to formulate the basic values to which a teacher should aspire. A
draft report of this study
cites values such as sound judgment, liberty,
responsibility, equality, respect for others, consideration, tolerance and
solidarity,
as expressed in the UN Convention on the Rights of the
Child.
- In
order to involve teachers in formulating the final version of the ethical code,
steering committee members visit schools and present
the draft of the code in an
active workshop that includes the presentation of hypothetical dilemmas and
discussion.
(ii) The Israel Psychologists’ Union
- This
organization actively participated in sessions of the Knesset committee on early
childhood that concerned issues of psychology
(e.g., promotion of legislation
authorizing free education for very young children, development of a network of
wellbaby clinics).
Union members also attended sessions of the subcommittee of
the Knesset labor and welfare committee that addressed amendments to
the Youth
Law and the Treatment of Mentally Ill Law.
3. Allocation of resources to protect the economic,
social and cultural rights of children
- In
this section we will present the mechanisms that protect the economic, social
and cultural rights of the child through the allocation
of appropriate budgets,
as outlined in article 4 of the Convention.
(a) Mechanisms for ensuring government and public allocation
of resources to children
- The
methods of ensuring that the services to which children are entitled are indeed
provided to them are anchored in law, in the regulations
stipulated by law, and
in the policy decisions of government ministries, as detailed in the Budget Law.
The allocation of resources
for families, health and welfare, education and
recreation, and special protective measures is described more extensively in
Chapters
VIIX.
(b) Government expenditures on services for
children
- There
is no comprehensive calculation of the expenditures on children from the
national budget. However, we may consider the following
data: During the first
half of the 1990s, the social expenditure of the government that is, the total
government expenditure on
education, health, personal welfare services and
income maintenance grew at an average annual rate of 8.7%. This growth
reflected
the change in the government’s priorities announced in 1993.
During the latter half of the decade, the government decided
to reduce its
deficit and hence to reduce its budget; nevertheless, the government’s
social expenditure continued to increase.
In 1999, the social expenditure
came to NIS 87 billion 54% of the available income from debt returns, and 23%
of the Gross National
Product. (For a description of government expenditures on
health and welfare, and education, see Chapters VIII and IX,
respectively.)
(c) Reducing discrepancies among groups and geographic
areas
- Since
ratification of the Convention, a number of steps have been taken to reduce gaps
among population groups. Some of these concern
children specifically, while
others influence them indirectly. These steps are discussed extensively in the
relevant chapters.
4. Voluntary organizations that implement and disseminate the
Convention
- This
section describes the role of nongovernment organizations in the promotion of
children’s rights, through implementation
and dissemination of the
Convention, as stipulated by articles 4 and 42 of the
Convention.
(a) Children’s rights organizations
- This
section describes organizations that deal with aspects of children’s
rights.
- DCI
Defense for Children International, Israel Section was established in Israel by
Jewish and Arab professionals in 1987 with the
aim of promoting the ratification
and implementation of the UN Convention on the Rights of the Child. The
organization works for
children’s rights in the Jewish and Arab sectors.
Following are its main areas of activity:
− Protecting children’s rights: DCI provides minors with legal
counsel and representation free of charge. It conducts
monthly inspections of
the conditions for minors in all of Israel’s prisons and detention
centers. When a violation of rights
is discovered, the organization makes a
complaint to the Prison Service Authority or the courts. In addition, DCI works
to redress
inequities and violations like the lack of special education in the
Bedouin sector, or violation of child labor laws.
− Disseminating children’s rights and the Convention: DCI operates
an information center that explains the Convention
and children’s rights,
particularly through lectures in schools. A special project has been devoted to
explaining children’s
rights to immigrants from Ethiopia. Once a year,
DCI holds a conference for professionals. It also publicizes the Convention
through
the internet, where a translation of the Convention into Hebrew appears.
The organization also disseminates the Convention newsletter
in Hebrew, Arabic,
Russian and Amharic, and publishes a local bulletin on children’s rights,
which also reports the organization’s
activities.
- The
Coalition for Children’s Rights was recently established by DCI. It
comprises 70 organizations that cooperate in promoting
the Convention
on the Rights of the Child, among them children’s organizations, human and
civil rights groups, and specialsector
rights groups (e.g., representing people
with disabilities). The coalition is compiling a report of nongovernment
efforts to implement
the Convention. Seven associations were chosen to
participate in the steering committee for this report: DCI, ELEM (see below),
the Association for Bedouin Rights, the Family Planning Association, the
Association of the Forty (which represents unrecognized
Arab villages in
Israel), Physicians for Human Rights, and TZACHI (special
education).
- The
National Council for the Child has been actively promoting children’s
rights since 1979. It does not directly provide education,
welfare or
other services to children, but rather ensures that children’s rights are
realized by promoting legislation, lobbying,
conducting research, and engaging
in public relations. In order to maintain its independence, the council does
not accept assistance
from government agencies; all of its income is from
contributions and grants from organizations, foundations and private donors.
The council has a number of departments and areas of activity:
− The Center for the Child and the Law lobbies to promote legislation on
children’s rights. The center has been involved
in many recent changes in
legislation and policy regarding children’s rights and welfare, such as
the amendment to the Penal
Law concerning the statute of limitations on sexual
crimes (see Chapter VII). The center works to enforce existing laws, and
engages
in legal debate when a child’s rights have been violated. The
center is developing a program of legal representation for children,
through
which council and volunteer attorneys will provide separate legal representation
for children in matters concerning their
future, such as the resolution of
custody disputes. In addition, the center provides consultancy services, and
implements a program
to escort minor victims of crime through the criminal
proceedings.
− Every year, The Center for Research and Education publishes a yearbook
on children in cooperation with JDCIsrael. The yearbook
provides current
statistical data on all aspects of children’s lives (education, law,
welfare, distress, health, etc.). The
center helps fund studies and surveys,
such as one on how the police handle minors. It also publishes position papers
and makes
policy recommendations, for example regarding the system of services
for children at risk. In cooperation with other organizations,
the center
organizes oneday conferences on child welfare, and cooperates with similar
organizations abroad. In 1996, the center
established a forum of business
people which implements projects with commercial corporations and involves the
commercial sector
in activities on behalf of children and children’s
rights.
− Since 1990, The Ombudsman for Children and Youth has received referrals
of all types concerning minors, including infringement
of their rights or harm
to their person, and has provided consultation and information and made
referrals to other agencies when
necessary. There are special ombudsman for
Arab minors and immigrant minors from the former Soviet Union and Ethiopia. The
existence
of the ombudsman is publicized among children through lectures in
schools, the mass media (radio, television and newspapers, including
children’s newspapers), advertisements in school diaries and on the backs
of notebooks, stickers, book marks, postcards and
the like. The number of
referrals to the ombudsman rose from about 200 in 1990 to about 8,500 in 1998.
Table 5 presents the referrals
to the ombudsman in 1996. The large proportion
of referrals from immigrant children is worthy of note.
Table 6
Referrals to the Ombudsman for Children and Youth, by subject
and sector, 1996
|
Total
|
Jewish sector Native Israelis
|
Immigrants from the former Soviet Union
|
Immigrants from Ethiopia
|
Arab sector
|
Total
|
7 271
|
3 780
|
1 963
|
887
|
641
|
Children at risk
|
1 423
|
1 023
|
226
|
101
|
46
|
Education
|
2 084
|
906
|
682
|
310
|
186
|
Information and counseling
|
1 737
|
1 008
|
418
|
179
|
132
|
Divorce
|
411
|
246
|
70
|
77
|
18
|
Police
|
227
|
135
|
34
|
13
|
45
|
Health
|
315
|
144
|
110
|
21
|
40
|
Employment
|
322
|
165
|
65
|
57
|
35
|
Other
|
752
|
153
|
359
|
129
|
111
|
Source: BenArie and Zionit, 1999
− By the end of 1996, the National Council for the Child had published
more than 50 books, pamphlets, bulletins, leaflets and
translations of
books on the rights of children. Some of these publications were geared for the
adult population, and some for children,
such as one addressing the rights of
youth employed during summer vacation. In cooperation with commercial
corporations that market
products to children, the council disseminated
pamphlets concerning the rights and obligations of children of different ages
(e.g.,
through a chain of restaurants). The council and a forprofit corporation
initiated a “mobile child rights van” that
visits schools and
recreation spots. In another joint effort, 150,000 postcards bearing the
declaration of the rights of the child
in Israel were distributed with cartons
of ice cream. The National Council for the Child broadcast a corner on
children’s
rights on a television program for children. In addition, the
council’s actions regarding infringement of children’s
rights are
frequently published in the media.
− In 1997, the National Council for the Child, together with other
lobbies, formulated a declaration of children’s rights
in Israel, which
was based on the tradition of Israel, the declaration of independence, and the
UN Convention on the Rights of the
Child. It included 12 articles, which
addressed the right to grow and develop, the right to social security, and the
right to the
special attention of the courts and law enforcement agencies. The
declaration was signed by the Knesset and disseminated through
posters, post
cards, and pamphlets, particularly in educational
institutions.
− Activities that relate to the UN Convention on the Rights of the Child
include the establishment of the committee to examine
the basic principles in
the field of children and the law, and their implementation in legislation (see
section (b) of this chapter),
to which the National Council for the Child was a
party. The council was assigned to coordinate the committee’s activities
by the Minister of Justice. As noted, this committee is the main mechanism for
implementing the Convention in Israeli legislation.
- The
Jerusalem Council for Children and Youth (JCCY) was established in 1984 as a
lobby for promoting the wellbeing of Jerusalem’s
children and youth,
particularly the underserved sectors of the population. It initiates innovative
projects designed to produce
social change, such as the Children’s
Ombudsman (1984) and KESHER (1989), engages in joint projects with the
municipality and
other organizations, involves youth in volunteer activities,
such as helping children with disabilities, and supports activities
for children
from singleparent families. JCCY develops brochures regarding parents of young
children on topic such as fostering
safety in the home, ensuring quality child
day care, taking preventive measures regarding neglected health issues,
especially in
early childhood (dental health), and regarding risk behaviors
among youth (alcohol and tobacco abuse, eating disorders).
- ELEM
Youth in Distress was established in 1983. Its main activities are initiating
services for youth at risk, and influencing policy
on youth at risk. ELEM
finances or helps finance the projects of government agencies such as the Youth
Protection Authority. ELEM
establishes shelters for children who don’t
have housing and operates vans to locate these youth; helps the Youth Protection
Authority develop community hostels for youth (in cooperation with ASHALIM and
DCI); establishes counseling centers in the form of
coffee houses for youth; and
provides treatment and vocational training for young women immigrants from the
former Soviet Union and
Ethiopia. ELEM also trains professionals in the
treatment of youth who have committed sex crimes (see Chapter X). Further, ELEM
lobbies for children’s rights and for the allocation of money to programs
for youth who have nowhere to live. ELEM coordinated
an operative program and
the publication of an interministerial and interorganizational report on
commercial sexual exploitation
of minors. ELEM was also the driving force
behind the establishment of the Knesset committee to examine violence among
youth.
- Yeladim
Council for the Child in Placement promotes the rights of children living in
outofhome frameworks, and works to improve the
quality of their lives (see
Chapter VII).
- ELI
Israel Association for Child Protection provides services to children who have
suffered abuse in the family (see Chapter VII).
It raises public awareness of
child abuse through educational programs, advertisements, and appearances on
radio and television,
and lobbies on behalf of child victims. ELI helped
promote the amendment to the Penal Law that requires reporting child abuse,
which
was ratified in 1989. ELI is currently lobbying to develop appropriate
services for immigrant children.
- MEITAL
The Israeli Center for the Treatment of Child Sexual Abuse directly provides
therapeutic services children and youth who were
sexually abused and their
families. It also trains professionals, works to increase public awareness of
sexual abuse of children,
and is establishing an information center.
- JDCIsrael,
the Israeli branch of the international Jewish Joint Distribution
Committee (JDC), helps other organizations establish
and improve services,
and works to strengthen voluntary organizations and lobbies. JDC projects are
active among all of Israel’s
subpopulations, and especially among
minorities. Children and youth are a top priority of this organization. During
the 1990s,
JDCIsrael developed new approaches to the care of immigrant youth
from the former Soviet Union and Ethiopia. At present, it coordinates
a
coalition of organizations that promote the education of Ethiopian immigrant
children. JDCIsrael has also developed services for
Arab children and youth,
including one to prevent their dropping out of school. In 1998, JDCIsrael, in
cooperation with the Israeli
government, established ASHALIM, which develops and
disseminates innovative programs for children at risk and encourages
interministerial
and interorganizational cooperation. Together with the
National Council for the Child, JDCIsrael publishes a statistical yearbook
on
children. JDCIsrael publishes pamphlets in Russian about children’s
rights, and helps finance the activities of the Ombudsman
for Immigrant Children
and Youth. JDCIsrael helps train professionals concerning children’s
rights by participating in a course
given at the School of Education of Bar Ilan
University and by publishing a book on children’s rights in the education
system.
JDCIsrael helps establish pilot programs. It also works to improve
existing organizations that take an innovative approach to caring
for children
at risk in the family and community, and to complete the continuum of services
for children in a variety of situations.
- SHATIL:
Employment and Training Center for Social Change Organizations in Israel helps
develop voluntary organizations under the auspices
of the New Israel Fund, which
financially supports organizations that protect human rights, especially the
rights of minorities.
For example, SHATIL helped publish a report on special
education in the Arab sector.
(i) Organizations in the Arab sector
- All
of the organizations that work on behalf of children’s rights in Israel
work with all segments of the population, and view
equality among them as a
goal. Within the Arab sector, a number of organizations concentrate on the
rights and welfare of Arab children.
- During
the past decade, the number of voluntary organizations and public associations
in the Arab sector has grown. Nevertheless,
activists in these organizations
estimate that their scope is still limited and does not cover all problems:
Some of them are active
to a limited extent, while others are intensely active
in specific areas. This creates confusion among the Arab population regarding
the role of each organization, as well as a certain vagueness that makes it
difficult to map the organizations. In general, some
of these organizations
work specifically on behalf of children, particularly in the field of education
(The Followup Committee on
Arab Education; Altufula Center Nazareth Nursery
Institute; The Trust of Programs for Early Childhood, Family and Community
Education;
Acre Women’s Association; Insann The Society for Applied
Research, Cultural and Educational Services), while others work on
behalf of the
entire population but also address the welfare of children (Adalah The Legal
Center for Arab Minority Rights in Israel;
Galilee Society The Arab National
Society for Health Research and Services; The Followup Committee on Arab Social
Services; Ittijah
Union of Arab Communitybased Associations). To illustrate,
we will describe five of the organizations cited.
- The
Followup Committee on Arab Education was established by and works under the
National Committee of the Heads of Arab Local Authorities
as a lobby to promote
education in the Arab sector. This voluntary organization aims to improve all
aspects of Arab education, from
facilities and equipment to teaching methods,
from the official goals of education to the contents of the curriculum. To this
end,
the committee cooperates with public agencies (the Ministry of Education,
the Knesset committee on education), lobbies the Ministry
of Education and
members of Knesset, raises public awareness of the problems of Arab education
through advertisement, oneday conferences,
and publications, raises the
awareness of decisionmakers in the field of education, cooperates with other
voluntary organizations
in the field, enlists the assistance of the Association
for Civil Rights on legal matters, and wages a public battle that sometimes
erupts in strikes and disruptions of the system. Cultural autonomy in Arab
education in Israel is a top priority of this committee
(Hazaan,
1998).
- Altufula
Early Childhood Center was established in 1989 to promote early childhood
education and advance women in the Arab sector.
In addition to providing local
services for young children and their parents, the center is establishing an
infrastructure for very
young children in the Arab sector by training manpower,
disseminating professional literature, distributing books to children,
publishing
an information leaflet, and holding oneday conferences. The center
helps establish educational frameworks for very young children
through contact
with the government, local authorities, and professionals in the field. It
cooperates with other voluntary organizations
in lobbying for services for very
young children.
- Adalah
The Legal Center for Arab Minority Rights in Israel was the first Arab legal
organization in Israel; it was established in
November 1996 and formally
registered as an association in December 1997. Adalah offers its services to
the Arab minority throughout
the country. Its main goal is to use Israeli law,
comparative law, and international human rights standards to achieve equal
rights
for Arabs, as individuals and as a group. Adalah focuses on land and
housing, employment, education, language, religion, unrecognized
villages,
women, and allocation of government budgets. Since 1997, Adalah has filed a
number of claims with the Supreme Court, among
them three concerning children
and youth (transportation to school, educational enrichment programs, wellbaby
clinics). In March
1998, Adalah published a shadow document regarding
implementation of the convention to eliminate all forms of racial discrimination
in Israel. Although there is no specific reference to children in the above
document, there is a chapter that deals with rights
in education (Adalah,
1998).
- Galilee
Society The Arab National Society for Health Research and Services was founded
in 1981 by a group of physicians to reinforce
health services in the Arab
sector, in part by establishing clinics in unrecognized villages. Over the
years, activity has expanded
to the entire country. While the association
initially dealt with health and the environment, since ratification of the
National
Health Insurance Law its activities have been reduced to operating a
mobile clinic in unrecognized villages in the Negev, under contract
to the
Ministry of Health. The association is trying to establish a library for the
blind, and to hold education programs for parents
and professionals who work
with children with special needs. The association plans to conduct a survey of
Arab children with special
needs.
- The
Followup Committee on Arab Social Services was established by the National
Committee of Heads of Arab Local Authorities in 1987,
and comprises
professionals from the Arab local authorities. The committee lobbies for
improved welfare services for the Arab population,
and aspires to induce the
government to reduce gaps in the extent of services provided. Every year the
committee chooses a main
area of activity, such as the welfare of Arabs in the
Negev. No matter what the area, attention is also paid to the needs of
children,
who comprise half of the Arab population. The committee places issues
on the public agenda through the media and oneday conferences,
and through
public battles, such as a joint struggle with the Union of Social Workers to
establish welfare departments in all of
the Arab local authorities, as
stipulated by the Social Services Law.
(ii) Organizations for immigrant children
- Several
organizations work specifically for immigrant children. As an example, we will
cite the North American Council on Ethiopian
Jewry (NACOEJ), which works on
behalf of Ethiopian immigrants, particularly children, in Israel. NACOEJ
participates in public debate,
promoting the integration of Ethiopian immigrant
children into education and making sure this issue remains on the public agenda.
It also operates intervention programs for Ethiopian immigrants in education
frameworks (see also Chapter IX).
(iii) Organizations for children with
disabilities
- At
present, a number of organizations specifically help children with disabilities.
Usually, each organization works on behalf of
a specific disabled population
(for example, ALUT The Israeli Society for Autistic Children, MICHA Society
for Deaf Children).
We will present two examples of such organizations (see
also Chapter VIII).
- KESHER,
an information, counseling and support center for parents of children with
special needs, was established in 1989 by the Jerusalem
Council for Children and
Youth; in 1993 it became an independent non-profit national association.
KESHER’s professionals counselors
assist parents through the maze of
services and multitude of service providers involved in their child’s care
by helping them
to sort out difficulties and reconnecting them to the relevant
services. KESHER’s Hotline for parents and professionals operates
in
Hebrew, Arabic, Russian and Amharic. Information is constantly updated via a
bi-monthly newsletter, as well as in pamphlets on
specific issues. A national
network of local branches is being developed.
- Bizchut
The Israeli Center for Human Rights of People with Disabilities was founded by
the Israel Association for Civil Rights and
promotes the rights, welfare and
wellbeing of disabled people of all ages. It provides legal consultation and
representation in
education, housing, and employment, and disseminates
information on the rights of the disabled. In addition, it lobbies for
appropriate
legislation for the disabled, and works to increase public
awareness.
(b) Nongovernment organizations’ interaction with the
Government
- Many
voluntary organizations have extensive contact with government agencies, and
receive some funding from the government. While
nongovernment organizations are
not systematically involved in planning policy, their influence has increased in
recent years, and
they take initiative in developing services and promoting
legislation for the best interests of the child.
5. Disseminating the Convention
- This
section will discuss mechanisms for disseminating the Convention to the public,
through government and nongovernment agencies,
as stipulated by article 42 of
the Convention.
(a) Translating and publishing the Convention
- The
UN Convention on the Rights of the Child was translated into Hebrew by the
Ministry of Justice and published in May 1993 in the
Official Gazette (K.A.
1038). DCI has been most active in disseminating the text of the
Convention, and to date has distributed
10,000 copies of it in Hebrew,
Arabic, English, Russian and Amharic, primarily through the Ministry of
Education and the Ministry
of Justice. The Hebrew text of the Convention
appears on the DCI website. The National Council for the Child disseminates
an abstract
of the Convention in Hebrew.
(b) Including the Convention in curricula
- In
1994, the Ministry of Education published a document entitled Involvement,
Partnership and Responsibility. This document concentrates on the rights of
the individual at school, and draws a parallel between the rights of the student
in
school and the rights of the individual in society. The Ministry also
disseminated a “School Convention” to implement
the principles
outlined in the document. The School Convention recognizes the right of
students to express their opinion, and to
criticize and suggest improvements in
school life. It does not obligate schools (as does a Ministry of Education
directorgeneral’s
decree), but rather makes recommendations, which a
school may accept or reject. Since publication of the document, tens of
secondary
schools have introduced experimental “school conventions”
(see Chapter IX).
- In
1995, a book was published on the rights of children, which emphasized what was
being done in the education system (Gilat, 1995).
The book presents the
outcomes of a study of 25 civics textbooks and curricula between 1948 and
1990, which were used with students
in grades seven through 12 in academic and
vocational schools in the State and State religious systems. The study revealed
a significant
lack of attention to children’s rights in civic
studies.
(c) Disseminating the Convention among
professionals
- Unions
are aware of the need to disseminate the Convention to professionals who work
with children. Following we will present a number
of examples of
this.
- Psychologists:
According to the head of the Israel Psychologists’ Union, the chief
psychologist of the Ministry of Education
is disseminating the Convention to
educational psychologists and SHEFI (Psychological Counseling Services)
stations, and encouraging
psychologists to help schools take comprehensive
responsibility for fulfilling the rights of students.
- Police
officers and youth workers on the police force: According to the head of the
youth section at police headquarters, the Israel
Police Force provides guidance
and inservice training on child victims of crime, with the aim of increasing the
efficiency and sensitivity
of the police force in handling them. Regarding
minors who have perpetrated crimes, new guidelines, regulations and laws in the
sprit of the Convention have been distributed to youth workers and field units,
and are strictly enforced. Training programs for
youth workers include the
Convention (see Chapter X).
- Teachers:
As noted, the Israel Teachers’ Union is establishing an ethical code. At
present, a pilot has been introduced into
several hundred schools, giving
teachers an opportunity to review and examine a draft of the code. In this way,
the Convention on
the Rights of the Child is disseminated among teachers. In
1990, the Ministry of Education established a hotline for students’
complaints of injustice or discrimination in the education system. One goal of
the hotline is to inform and counsel educators on
students’ rights. The
professional ethical guidelines for hotline staff jibe with the Convention (see
Chapter IX).
- Physicians:
The medical ethics published by the Israel Medical Association and ratified at
the association’s 38th convention
require preserving the confidentiality
of all patients, including children. Specific attention is paid to children in
several other
clauses. The association also made a declaration to the World
Medical Union regarding the rights of the child patient (see Chapter
VIII).
- Lawyers:
The Jerusalem Bar Association held a course for lawyers on all of the UN’s
conventions. A joint program of the State’s
attorney general, the
National Council for the Child, and JDCIsrael trains lawyers on crimes against
children.
- Social
workers: At a conference on children at risk, the deputy attorney general spoke
on children at risk and the UN Convention
on the Rights of the
Child.
(d) Disseminating the Convention in the mass
media
- As
noted, the National Council for the Child publicizes the activities of the
Ombudsmen for Children and Youth, and issues of children’s
rights in
general. For example, for the third consecutive year the council is sponsoring
a regular corner on a radio program, which
presents actual cases in the care of
the Ombudsman for Children and Youth. The council also broadcasts a television
program specifically
dealing with children’s rights. In addition, regular
radio programs for immigrants are broadcast in Russian and Amharic.
The council
also publicizes items in the print media, particularly those for children and
youth.
- An
interesting example of the Convention’s dissemination is offered by a
HebrewArabic magazine for children with a circulation
of between 4,000 and 5,000
copies; it is distributed through organizations, schools and libraries. In
response to children’s
letters to the editor, the magazine produced a
special issue on children’s rights which covered children’s rights
in
the world, defining children’s rights, child labor, and whether
teachers teach children their rights.
(e) Preparation of this report
- This
report was prepared and financed by the Ministry of Justice and the Ministry of
Foreign Affairs. The authors of this report
consulted with judges, members of
Knesset, and representatives of the Ministries of Education, Labor and Social
Affairs, Health,
and Public Security, and NGOs. Prior to its submission to the
Untied Nations, this report was disseminated in Hebrew to voluntary
organizations, and a seminar was held to discuss the issues raised in
it.
IV. DEFINITION OF THE CHILD
- This
chapter will review the ages at which children in Israel are granted rights and
incur obligations, and examine the degree to
which the legal system reflects the
prevailing perspective that the transition between childhood and maturity is a
gradual one, during
which children acquire the skills that enable them to
function as adults and make decisions that affect their fate. The chapter
focuses on the ages at which rights are granted and obligations incurred, and
not on the essence of those rights and obligations,
which are discussed
elsewhere in this report.
Article 1 of the Convention
1. Defining childhood and legal minority
(a) Definition of childhood versus adulthood
- Section
3 of the Guardianship and Legal Capacity Law 1962 stipulates that “an
individual who has not reached the age of 18 is
a minor; an individual who has
reached the age of 18 is an adult”, subject to specific rulings. In this,
Israeli law upholds
the UN Convention on the Rights of the
Child.
(b) Fetuses
- Section
1 of the Guardianship and Legal Capacity Law 1962 stipulates that an individual
has rights and incurs obligations from birth
until death. From this we infer
that fetuses do not have rights, nor do they incur obligations. Nevertheless,
specific rulings
which, as noted, may overrule the general stipulations of the
Guardianship and Legal Capacity Law grant fetuses the protection
or rights
granted children.
- Thus,
for example, the definition of a “child” in section 2 of the Civil
Wrongs Ordinance [New Version] does “include[ing]
... fetuses”.
According to section 3(b) of the Succession Law 1965, an individual is
eligible to inherit if he or she “was
born within 300 days of the death
of the person bequeathing the inheritance...unless it is proven that his
parentage was post facto”.
Section 2 of chapter 10 of the
Penal Law 1977 stipulates that performing an abortion on a woman is a crime,
unless the abortion was
approved a priori by a committee appointed for that
purpose, which established the existence of one of the extenuating circumstances
stipulated by law. According to section 33(a)(6) of the Guardianship and Legal
Capacity Law, the court has the authority, at the
request of a relative or the
attorney general, to appoint a guardian for a fetus to manage specific matters
outlined by the court;
beyond these, the guardian of a fetus does not have the
general obligations of the guardian of a minor. It is not permitted to appoint
the father, or another individual, to be the guardian of a fetus at a hearing of
the committee to approve abortions (see Civil Appeal
413/80 Anonymous
Plaintiff v. Anonymous Defendant, P.D. 38(3) 57).
2. The right to participate in civil activities
(a) The right to vote and to be elected
- The
right to vote for the Knesset and the prime minister is granted from the age of
18. A recentlyratified law grants the right to
vote in local or municipal
elections from the age of 17. The right to be elected to the Knesset and to a
local or municipal authority
is granted from the age of 21. The right to be
elected prime minister is granted from the age of 30. The right to be a member
of
a political party is granted from the age of 17 (see section 20 of the
Political Parties Law 1992).
(b) Identity card
- Residents
of the State of Israel are obligated to obtain and carry an identity card from
the age of 16. A minor who has not reached
the age of 16 may obtain an identity
card with the consent of his representative or the approval of the chief records
clerk.
3. Taking legal action: the legal capacity of minors
- As
noted, under the Guardianship and Legal Capacity Law 1962, minors have rights
and incur obligations. However, as a rule, a minor
may only take legal action
with the consent of his representative (that is, parent or other guardian; see
sections 4 and 80 of that
law). Legal action taken by a minor without the
consent of his representative may be annulled by the representative within 30
days
of his being informed of the action. If the representative is not informed
of the action, the minor himself may annul the action
within 30 days of his
reaching legal majority (see section 5 of the law). Nevertheless,
“the legal action taken by a minor
that minors of his age would perform,
and a legal action between a minor and an individual who did not know or is not
expected to
know that he is a minor, may not be annulled even if it was made
without the consent of his representative, unless it incurred real
damage to the
minor or his property” (section 6 of the law). This section allows
for significant change in the actions that
minors are thought capable of
undertaking, according to the development of Israeli society over time. This is
a dynamic process
that reflects the mutable norms of the society or the era, and
so accounts for the changing abilities of children as a group. In
order for
an act to be considered “one that minors his age would perform”,
time must pass before the act becomes rooted
as custom.
- For
example, the Magistrates’ (Circuit) Court in Jerusalem ruled that a young
person age 17 has the right to own a dog, as receiving
a dog as a gift
“is an act that minors his age might perform”, while the District
Court in Beer Sheva ruled that purchasing
a gas balloon for household use was an
act a minor age 12 might perform. However, some legal actions of minors
for example, actions
that have economic weight, such as selling an apartment, or
actions that involve a conflict of interest between the minor and his
representative, such as a business transaction between them require the
approval of the court, as the consent of the minor’s
representative is
deemed insufficient.
4. Receiving medical care
(a) Consent to medical treatment
- Consent
to medical treatment is a legal action, and therefore requires the approval of a
minor’s representative. This is specifically
stipulated in section 13(c)
of the Patients’ Rights Law 1996.
- Nevertheless,
some medical treatments may be performed with the consent of the minor, without
the consent of his representative.
These include abortion (section 316 of the
Penal Law 1977); a test to detect the presence of the AIDS virus (if a
physician has explained
the meaning of the test, found that the minor understood
the explanation, and believes that the minor has sufficient emotional maturity;
for minors under age 14, the approval of a team of professionals, comprising a
physician and a social worker, is required (Detection
of the AIDS Virus in
Minors Law 1996)); and, for minors over age 15, mental health care, including
hospitalization, with the approval
of the court (section 3G of the Youth (Care
and Supervision) Law 1960, and section 4B of the Treatment of Mentally Ill Law
1991).
Medical treatment without parental consent is possible with the
approval of the court for minors whose parents do not show proper
concern for
their welfare (sections 2 and 3 of the Youth (Care and Supervision) Law 1960).
In such cases, the minor is assisted
by a welfare worker. At present the
Ministry of Health is preparing guidelines for physicians regarding the routine
treatment of
minors age 14 and over, without parental consent.
(b) Refusal to receive medical treatment
- The
law gives no specific instruction in the case of a minor who refuses to receive
medical treatment not as a consequence of mental
illness in defiance of his
parents’ wishes. This issue has been raised in the Supreme Court, but has
not been decided. However,
under some circumstances it is possible to provide
medical treatment to any individual, including a minor, without his consent.
(See Chapter VIII.)
- A
boy or girl who has reached the age of 15 can oppose admission to a psychiatric
hospital even when his or her guardian has consented
to it; in such a case, the
court may appoint a lawyer to represent the minor (section 13 of the Youth (Care
and Supervision) Law
1960).
5. Completion of compulsory education
- According
to section 1 of the Compulsory Education Law 1949, education is compulsory for
children and youth up to age 15 inclusive.
As a rule, secondary education over
the age of 16, although not compulsory, is provided free until age 18, and
education for people
with special needs (as defined in the Special Education Law
1977) is provided free until age 21. Under the Apprenticeship Law 1953,
being
an apprentice is also thought to constitute compulsory education (as defined by
section 2A(a) of the Compulsory Education Law
1949). Youth who do not attend an
education framework that is under the surveillance of the Ministry of Education
thus still have
the right to a basket of services under section 6 of the
Compulsory Education Law 1949 (see Chapter IX).
6. Permission to employ children
- The
Youth Employment Law 1953 distinguishes between a “child” who has
not yet reached the age of 16, and a “youth”
who has reached the age
of 16 but has not yet reached the age of 18. Under this law, a
“youth” is the same as a “minor”
that is, an individual
up to age 18. Section 2 of the Youth Employment Law 1953 generally forbids the
employment of children who
have not yet reached the age of 15 or who are subject
to compulsory education under the Compulsory Education Law 1949. This
corroborates
the stipulation of the UN Convention regarding the uniformity of
the age of completion of compulsory education and the age at which
an individual
may be employed. In effect, it is usually permissible to employ a minor from
the age of 16 (see Chapter X).
- Under
section 2 of the Youth Employment Law 1953 it is permissible to employ a child
who has reached the age of 15 and who works as
an apprentice under the
Apprenticeship Law 1953; a child age 15 who has completed his compulsory
education; and a child age 14 whose
employment has been approved by the Minister
of Labor and who has been excused from compulsory education. Employers of
youths of
compulsory school age are required to release them to attend school,
without debiting their salary, during school days and hours.
Failure to fulfill
this obligation is a criminal offense (under section 4(c) of the Compulsory
Education Law 1949). Children who
have not yet reached the age of 14 may
work during official school vacations in light jobs that do not endanger their
health or development
(section 2A of the Youth Employment Law 1953). Under
section 4 of the Youth Employment Law 1953, the Minister of Labor and Social
Affairs may permit the employment of children under the age of 15 in artistic
productions or advertising photographs, for a limited
time. (For a description
of the restrictions on the hours and types of employment permitted to children
and youth, see Chapter X.)
7. Marriage
- The
State of Israel is a signatory of the International Convention on Setting a
Minimum Marriage Age. Israel forbids putative marriage
in order to protect
individuals who are not physically or mentally mature from the negative
implications of marriage at an early
age.
- The
Marriage Age Law 1950 stipulates that the minimum age of marriage, for men and
women, is 17. According to section 2 of the law,
it is a criminal offense to
marry a young man or woman who has not reached the age of 17, or to assist in
conducting the marriage
of such young men and women. The young man or woman
does not commit an offense under the law if he or she marries prior to reaching
age 17, unless his or her partner has also not reached the age of
17.
- According
to section 5 of the law, Family Court is authorized to permit the marriage of a
young woman if she has conceived or given
birth to a child by the man whom she
wishes to marry, and may permit the marriage of a young man if the woman whom he
wishes to marry
has conceived or given birth to his child. Under certain
circumstances, the court may permit the marriage if the young man or woman
have
reached the age of 16. Circumstances that invoke the court’s leniency are
the desire of the youths and their parents
for the marriage, ethnic customs,
economic considerations, and extensive preparations for marriage (see Civil
Appeal 50/81 Attorney General v. Anonymous Defendant, P.D. 35(4)
430; Civil Appeal 690/77 Hanifam v. State of Israel, P.D. 42(1)
531).
- According
to Jewish religious law (halacha), which in Israel confers validity on
the marriage of Jews conducted within its borders, it is possible to marry a
girl of any age,
but the girl herself may decide to marry only when she has
reached the age of 12 and a half. A Jewish boy may be married from the
age of
13, and he himself may decide to marry at this age. According to Moslem law
(shari’a), a father may promise his daughter in marriage from the
age of nine, but a girl may decide to marry only when she has reached the
age of
17. A Moslem boy may be married from the age of 12, and he himself may decide
to marry from the age of 18. According to
the Christian law practiced in
Israel, a boy may marry from the age of 16 and a girl from the age of 14. Under
all of the religious
laws reviewed, the age of marriage of girls is younger than
that of boys. In any case, as noted, the criminal sanction against the
marriage
of children is stipulated in a Knesset law, which also sets a uniform marriage
age for boys and girls of all religions.
In reality, the marriage rate of young
men and women in Israel is very low (see Chapters VII and X).
8. Consent to sexual relations
- Section
346 of the Penal Law 1977 concerning consensual, unlawful sexual relations
stipulates that an individual who engages in sexual
intercourse with a minor who
has reached the age of 14 but has not yet reached the age of 16 and who is not
married to him, or an
individual who engages in sexual intercourse with a minor
who has reached the age of 16 but has not yet reached the age of 18 by
exploiting relations of dependence, authority, education or supervision, or by
making a false promise of marriage or masquerading
as being unmarried while
being married, is subject to five years’ imprisonment. From this we may
infer that engaging in sexual
intercourse with a minor who has reached the age
of 14 is permitted in the framework of marriage. According to section 353 of
the
law, someone accused of this offense may defend his actions if the age
difference between himself and the minor girl does not exceed
three years, and
if the sexual intercourse was engaged in as an aspect of regular intimate
relations, and not
through exploitation of the defendant’s status. In this, the
legislator sought to extend his
protection to young couples who engage in
mutual friendly relations. A 1998 amendment to the Penal Law eradicated the
distinction
between a minor boy and a minor girl regarding consensual sexual
relations, and set a uniform age for pederasty and consensual, unlawful
sexual
relations. Both of these acts are prohibited for individuals who are between 14
and 16 years of age.
9. The compulsory draft, volunteering for military
service,
and participation in acts of war
- The
Defense Service Law [Consolidated Version] 1986 stipulates that an individual
may be drafted into military service from the age
of 18. A young man or woman
may be drafted at age 17 if they have so requested in writing, and their
guardian has given his consent.
A child under the age of 17 may not be involved
in acts of war.
10. Criminal and tortious liability
(a) Criminal liability
- Section
34F of the Penal Law 1977 stipulates that “an individual is not criminally
liable for an act he committed before reaching
the age of 12 years”.
Nevertheless, delinquent acts of children under age 12 may be cause for
initiating tortious proceedings
under the Youth (Care and Supervision) Law 1960.
Minors who have not reached the age of 13 will be prosecuted only in
consultation
with a probation officer (see section 12 of the Youth (Trial,
Punishment and Modes of Treatment) Law 1971). (See also Chapter
X.)
(b) Tortious liability
- Section
9 of the Civil Wrongs Ordinance [New Version] relieves children under the age of
12 of liability for civil wrongs. It is
not possible to sue a minor (under age
18) for a civil wrong resulting directly or indirectly from a contract he made.
However,
a minor’s tortious immunity does not preclude the possibility of
filing a claim against him of possession on the basis of ownership,
or of filing
a contractual claim in a matter considered one that a minor his age might
perform, including for violation of the obligation
to bona fides (best interests
faith) in negotiating a contract. Minors are not released from liability for
contributory guilt, which
is determined according to the degree of caution
required of minors of tortious age.
(c) Statute of limitations
- As
a rule, the civil statute of limitations in Israel is seven years (see section 5
of the Prescription Law 1958). According to section
10 of that law, in
calculating the period of limitations, the time before the plaintiff reached the
age of 18 is not to be considered;
thus, an individual can bring suit for events
that took place when he was a minor up until the age of 25.
- According
to section 14 of the Youth (Trial, Punishment and Modes of Treatment)
Law 1971, “a minor may not be tried for an offense
if a year has
passed since the offense was committed, except with the consent of the attorney
general”.
- In
offenses of rape, consensual, unlawful sexual intercourse, pederasty and
indecent acts committed against a minor, the period of
limitations begins the
day the victim reaches the age of 18. If ten years have passed since the
offense was committed, no indictment
may be made, except with the approval of
the attorney general (section 345 of the Penal Law 1977).
11. Revocation of liberty
(a) Detention
- The
Youth (Trial, Punishment and Modes of Treatment) Law 1971 and the Criminal
Procedure (Enforcement Powers Arrests) Law 1996 set
restrictions on the
detention of minors. While adults may be detained without a court order for 24
hours, children up to the age
of 14 may be detained without a court order for
only 12 hours; in special circumstances, the duty officer at a police station
may
order continued detention for an additional period, which is not to exceed
12 additional hours. Regarding minors ages 1418, at present,
the arrangement
for their detention without a court order is similar to that for an adult. In
other words, they may be detained
without a court order for to up to 24 hours;
in special cases, this period may be extended by an additional 24 hours (see
Chapter
VII).
- Under
section 10(4) of the Youth (Trial, Punishment and Modes of Treatment)
Law 1971, which addresses detention prior to indictment,
juvenile court is
authorized to order the detention of a minor for a period that is not to exceed
ten days (instead of 15 days for
an adult) and to extend detention, from time to
time, for periods that are not to exceed ten days. A minor suspect may not be
detained
continuously for the same offense, including without a court order, for
a period in excess of 20 days (instead of 30 for an adult),
unless a request for
continued detention has been filed with the consent of the attorney general. It
should be noted that the maximum
period of detention prior to indictment is
identical for minors and adults: 90 days (section 51 of the Criminal Procedure
(Enforcement
Powers Arrest) Law 1996).
- Section
13 of the Youth (Trial, Punishment and Modes of Treatment) Law 1971 requires the
separation of minor and adult detainees (see
Chapter X).
(b) Detention for protective purposes
- In
Israel it is also permissible to detain a minor to protect him. Section 10(3)
of the Youth (Trial, Punishment and Modes of Treatment)
Law 1971 stipulates that
“the judge before whom a minor is brought is authorized to order his
detention if this is required
to ensure the minor’s personal safety or to
remove him from the company of an undesirable individual”. A police
officer
is authorized to order detention on these grounds for 12 hours, until
the minor is brought before a judge, and in special circumstances
for 24 hours.
(This section of the law is disputed; for further detail see Chapter
X.)
(c) Imprisonment
- According
to the Youth (Trial, Punishment and Modes of Treatment) Law 1971, it is possible
to impose a punishment of imprisonment
on a child who is age 14 at the time of
his sentencing. In sentencing a minor, the Juvenile Court must consider, inter
alia, the
age of the minor when he committed the offense. For minors, the
tendency of the court is to prefer methods of treatment that are
not
imprisonment (see Chapter X).
- It
is forbidden to imprison a minor with adults (section 25 of the Youth (Trial,
Punishment and Modes of Treatment) Law 1971).
(d) Closed residences
- Closed
residences, as defined in the Youth (Trial, Punishment and Modes of Treatment)
Law 1971, serve as outofhome residences or the
locus of custody for a minor
referred to them by the Commissioner of Residences. A minor may be sent to a
closed residence as a
punishment or as a treatment alternative to punishment.
Also, a minor who is under the age of criminal liability, and a minor who
is a
danger to himself and others and who has been declared a minor in need may be
sent to a closed residence (see Chapters VII and
X).
12. Capital punishment and life imprisonment
- An
individual who was a minor on the day he committed an offense may not be
sentenced to death (in practice, the death penalty is
not imposed on adults in
Israel, either). Despite what is inscribed in every ruling there is also no
obligation to impose a life
sentence, a compulsory sentence, or a minimum
sentence (section 25(b) of the Youth (Trial, Punishment and Modes of Treatment)
Law
1971) on an individual who was a minor in the day he committed an offense.
A Supreme Court judge has expressed the opinion that,
in light of the UN
Convention, courts should exercise judgment and impose life prison sentences on
minors in exceptional cases only.
However, the other judges in that case found
that the matter warrants further consideration (see Chapter X). (Criminal
Appeal 3112/94
Abu Hassan v. State of Israel (11.2.99. not yet
published).)
- While
the death penalty formally exists in Israel in a very limited number of
extremely severe cases listed below, Israel applies
a moratorium on executions.
In fact, the death penalty has never been implemented since the establishment of
the State of Israel
in 1948, with one exception in 1962, in the case of the
Nazi criminal Eichmann, who was convicted of genocide under the 1950 Nazi
Collaborators (Punishment) Law. In addition, since 1954 Israel has removed the
death penalty for the crime of murder from its penal
code and its military
law.
- The
five rare and extreme instances in which the death penalty formally exists in
Israeli law are with regard to murder of persecuted
persons during the Nazi
Regime and during World War II for crimes against the Jewish people and
against humanity, genocide or assisting
in the act of genocide, treason of
soldiers in time of armed conflict, treason during war, and the sabotage and
unauthorized use
or transfer of firearms and explosive
materials.
- In
any event, the death penalty cannot be imposed on any person who was a minor at
the time of committing the offense. (Section 25(b)
of the Youth (Trial,
Punishment and Modes of Treatment) Law 1971).
13. Giving testimony in criminal and civil court
(a) Capacity to testify
- According
to the Evidence Ordinance [New Version] 1971, children of every age may testify
in court. However, the court must examine
the ability of child witnesses to
present a precise testimony of what they have experienced.
(b) Admissible testimony
- When
ruling in matters of civil law, the court must explain its decision to base
itself on the sole testimony of a minor younger than
age 14 that was not
corroborated, regardless of whether the minor bears criminal liability (section
54 of the Evidence Ordinance).
- When
ruling in matters of criminal law, an individual may not be convicted on the
basis of the sole testimony of a minor whose age
at the time of testimony is
less than 12 years (the age of criminal liability), unless additional evidence
corroborates the child’s
testimony (section 55 of the Evidence Ordinance).
The reason for this is that a minor below the age of criminal liability may not
be punished for perjury.
(c) Limitations on the testimony of minors
- The
Evidence Ordinance Revision (Protection of Children) Law 1955 restricts the
testimony of minors to certain areas. The restrictions
are not a consequence of
the incapacity of minors to testify, but rather are meant to protect minors in
general, and children under
the age of 14 in particular. Section 2 of this
law stipulates that minors who have not reached the age of 14 may not
testify concerning
an offense against morality (i.e. crimes of prostitution and
vice, sex crimes, and crimes committed by an adult against a child for
whom he
is responsible, including violation of parental responsibilities, and assault or
abuse of a minor or helpless person), or
concerning some offenses against the
body perpetrated upon or in the presence of or by a minor. A minor’s
testimony in these
matters is only accepted on the authority of a youth
interrogator, and only if the youth interrogator believes that testifying will
not cause the minor mental anguish. According to section 9 of the law, if the
youth interrogator has forbidden the testimony of
a minor, the minor’s
admission to the investigator may be presented as evidence in place of his
testimony. However, according
to section 11 of the law, such evidence cannot be
the sole basis of conviction, and must be corroborated (see Chapter
X).
- The
court is authorized to order that the testimony of a minor under the age of 18
against his parents in a criminal proceeding for
a sex offense must be heard in
the absence of his parents and in the presence of his defense attorney, so as to
protect the witness
from mental anguish (section 2A of the
law).
14. Legal representation without parental consent
- A
minor may be legally represented by a legal guardian appointed by the court, or
by a lawyer who represents the minor directly, without
the intercession of a
guardian. However, a minor’s right to separate legal representation is
not set in law.
- The
choice between these two methods of representation is made based on the
minor’s emotional maturity, though as a rule, representation
is provided
by the minor’s guardian usually his parents. Section 13 of the Youth
(Care and Supervision) Law 1960 stipulates
that a minor who objects to
psychiatric hospitalization has the right from the age of 15 to independent
representation by a lawyer.
The National Council for the Child and DCI help
children by providing them with the services of a lawyer or legal
guardian.
- Legal
representation of a minor in specific proceedings. Regarding certain
proceedings, specific attention is paid by legislation
and case law as to the
representation of minors. Below we review situations in which the usual rule
that is that the guardian serves
as representative does not
apply.
- Private
law proceedings. Section 3(d) of the Family Courts Law 1995 stipulates that a
minor is authorized, by himself or through
a close friend, to file a legal claim
in any family matter in which his rights may have been violated. In addition, a
minor can
file a request as part of a legal claim filed by someone else, and can
appear in court. However, neither the law nor the regulations
arising from the
law arrange for the appointment of a lawyer to represent the minor. Such
representation is important in all of
those cases in which there is factual
evidence that the best interests of the minor would be neglected in a battle
between his parents
his natural guardians. At present, the Supreme Court has
ruled that it is possible to obtain independent representation for a minor
through the appointment of a legal guardian (see Civil Appeal 878/96 Pozilov
v. Pozilov, P.D. 50(5) 208). Some believe that it is also possible to
appoint a lawyer for a minor, and not only a legal guardian.
- Public
Law Proceedings. In proceedings to determine need under the Youth (Care and
Supervision) Law 1960, the initial request to
declare a minor as being in need
is filed by a welfare worker. However, under section 14 of the law, a minor may
himself file a
request to change the decision of a juvenile court and may be a
respondent in such proceedings. There is no instruction to appoint
a lawyer for
a minor in such a case, even though the proceedings may infringe on the
minor’s rights (with his parents’
tacit consent or even support).
In such proceedings, Family Court and Juvenile Court are authorized to appoint a
legal guardian
for the minor.
- In
proceedings according to the Adoption of Children Law 1981, section 23 of that
law authorizes the court to appoint a legal guardian
for an adopted child or
candidate for adoption.
- Section
18(a) of the Youth (Trial, Punishment and Modes of Treatment) Law 1971
authorizes a court sitting in a criminal proceeding
against a minor to appoint a
defense attorney for the minor without the consent of his parents, if it
believes that his best interests
so requires. Juvenile courts are not wont to
use this authority because of the rehabilitative nature of their
work (see Chapter X). In certain cases the court is obligated to
appoint a defense attorney for a minor who is not represented for
the same
reasons that apply to an adult defendant; the court is also required to appoint
a defense attorney for a minor defendant
who has not reached the age of 16
and who has been brought before a court that is not a juvenile court (see
Chapter X). According
to the Public Defender’s (Entitlement to
Representation of Additional Minors) Regulations 1998, minors are eligible for
representation
by the public defender in criminal proceedings if they have been
detained or indicted (with the exception of an indictment for an
offense that is
not a crime, which is made before a traffic court judge). Given the increasing
practice of legal representation
of minors in criminal and civil trials, the
contract between a minor and a lawyer may be seen as being “an act a minor
might
perform”, and hence not require the consent of the minor’s
representative (section 6 of the Guardianship and Legal Capacity
Law 1962).
15. Outofhome placement
- According
to section 8 of the Youth (Care and Supervision) Law 1960, the Juvenile Court is
required, prior to ruling in the matter
of outofhome placement, to give the
minor himself an opportunity to make claims and proposals. The law does not set
a minimum limit
for the age at which this right becomes available to
minors.
- There
is no systematic data on the extent to which minors are actually heard in court,
or on how their proposals are weighed. According
to information received from
the chief child protection officer pursuant to the Youth Law, a hearing depends
on the minor’s
age, as well as on the opinions of the child protection
officer and the judges sitting in the case (see Chapter VII).
16. Placement in the custody of one parent
- According
to section 25 of the Guardianship and Legal Capacity Law 1962, if separated
parents have not reached an agreement regarding
the custody of their children,
the court will rule in the matter; barring extenuating circumstances that would
indicate a different
ruling, children under the age of six will remain with
their mother.
- It
is acceptable in court rulings to consider the wishes of a child beginning at
approximately age ten, as the child’s preference
from this age is thought
to be an important indicator, at least prima facie, of his future best interests
and happiness. The weight
given a child’s wishes depends on his age, his
discrimination and judgment, and the degree to which he is vulnerable to outside
influence. The Supreme Court distinguishes between a preference for one parent,
and strenuous opposition to one parent (Civil Appeal
740/ Anonymous Plaintiff
v. Anonymous Defendant, P.D. 43(1) 661). However, at present, a
child’s preference does not legally have decisive weight unlike cases of
adoption
or conversion (see Chapter VII).
17. Adoption
- According
to the Adoption of Children Law 1981, it is possible to adopt an
“individual” who has not yet reached the age
of 18. It is not
possible to adopt a fetus before it is born. According to section 7 of the law,
a court will not give an adoption
order unless it has been
convinced that a child who has reached the age of nine or who has yet to
reach the age of nine but who has impressed the court that
he is capable of
understanding the issue wants to be adopted by the adopter(s). Rulings
indicate that the court must also hear
the opinion of a much younger child who
is not an infant. Nevertheless, in some cases the law allows the court to issue
an adoption
order without revealing the fact of the adoption to the adoptee (if
three conditions are fulfilled: the adoptee does not know that
the adopter is
not his parent; all signs indicate that the adoptee desires the continuation of
the relationship with the adopter;
and the best interests of the adoptee
requires not apprising him of the adoption). In lieu of hearing the adoptee in
person, the
court may be convinced of the adoptee’s wishes in some other
manner, for example, if a child protection officer voices the
adoptee’s
opinion (see Chapter VII).
Delivery of a minor under the Execution of Judgments
Law
- Section
62 of the Execution of Judgments Law 1967 stipulates that if a court rules that
a minor must be delivered, or that contact,
visitation or communication must be
allowed between a parent and his minor child who is not in his custody, or that
any other action
be taken in the matter of the minor, and if the court rules
that the action is to be carried out through the Execution of Judgments
Office,
the executor will take all of the steps necessary to comply with the ruling, and
will be assisted in this by the welfare
worker. Section 62(b) of the law
qualifies this instruction, stating that if the Execution of Judgments Office
has determined that
the ruling cannot be carried out except against the will of
the minor, and the Execution of Judgments Office believes that the minor
is
capable of comprehending this, then the head of the Execution of Judgments
Office is authorized to petition the court that made
the ruling and request
instructions. Section 62 does not make this conditional upon the minor’s
age, but rather on his legal
capacity, which is expressed in his ability to
“understand the matter” (for further detail see Chapter
VII).
18. Changing one’s name
- As
a rule, under the Names Law 1956, the names of minors are chosen and may be
changed without their consent. However, in certain
cases the court is
authorized to intervene in the decision of parents or guardians in this matter,
or to change the instruction set
down in the law. Petitioning the court with
such a request is likely to be the initiative of a minor.
- For
example, one ruling, which was based in part on the UN Convention on the Rights
of the Child, determined that a 16yearold girl
who had been raised all her life
by a foster family was authorized to change her family name to that of the
foster family. However,
as this ruling was handed down by a District Court it
does not constitute a binding precedent, although it may guide the lower
courts.
19. Accessibility to information about one’s biological
family
- From
the age of 18, adoptees are authorized to review their adoption papers and the
details of the identity of their biological parents
(section 30(b) of the
Adoption of Children Law 1981). This is also true for children born to a
“surrogate mother”, who
may know her identity from the age of 18
(section 16 of the Surrogates (Ratification of Agreement and Status of the
Newborn) Law
1996).
20. Legal capacity to inherit and transfer property
Legal capacity to inherit
- According
to the Succession Law 1965, if an individual dies intestate, his children are
the beneficiaries of the first order. In
any case, even if he has left a will
and regardless of what is written therein, his minor children (including, as
noted, those who
were fetuses at the time of his death, as well as children out
of wedlock, adopted children, and grandchildren who were orphaned
before his
death or whose welfare was his concern and responsibility, in lieu of parents
who could not uphold the children’s
maintenance) are eligible for child
support from the estate. Removing a minor from his portion of the estate, or
transferring his
portion, or putting a lien thereon before the estate has been
distributed, requires the consent of the court.
- According
to section 24 of the Succession Law 1965, minors are not capable of being
witnesses to the making of a will. According
to section 26 of the law, minors
are not capable of bequeathing, and the will of a minor is
invalid.
21. The right to organize
- In
reality, children often “organize” to participate in social or
political activities, such as youth movements or demonstrations.
However, there
is a question as to whether children are authorized to unite in every form for
example, to register as an association.
In any case, it is necessary to examine
whether the action in question is “one that minors would perform”,
as required
by the Guardianship and Legal Capacity Law 1962 (see Chapter
VI).
22. Choice of religion
- The
freedom of religion and conscience is promised in Israel’s Declaration of
Independence and has been developed in court rulings;
it includes the freedom to
convert to a different religion. According to section 13A of the Guardianship
and Legal Capacity Law
1962, a minor who has not reached the age of 18 may not
be converted unless both of his parents have given their consent in writing
a
priori, or the court, at the request of one parent or guardian, has approved the
conversion a priori. Parents are allowed to convert
their children who have not
yet reached the age of ten. The conversion of a child who has reached the age
of ten requires the child’s
consent in writing. Nonfulfillment of this
condition not only renders the conversion invalid, but is also a criminal
offense (section
268 of the Penal Law 1977; see Chapter VI).
23. Consumption of alcohol
- Section
193a of the Penal Law 1977 forbids the sale of alcohol to minors under the age
of 18. The law does not forbid the drinking
of alcohol by
minors.
24. Driving
- A
minor’s receipt of a driver’s license depends upon the type of
vehicle. From the age of 16, a minor may receive a driver’s
license
for a tractor or a motorcycle with an engine of up to 50 cc. If the
intended driver has not yet reached the age of 17, he
must receive the consent
in writing of his parents or guardian to receive the driver’s
license.
- At
the age of 17½ a minor may receive a driver’s license for most types
of private and commercial vehicle, if the vehicle’s
total weight does not
exceed four tons and its maximum number of passengers does not exceed eight.
During the first year after receiving
the license, the minor must drive while
accompanied by an experienced driver. Beginning at age 21, an individual may
receive a license
to drive a bus, taxi or rescue vehicle.
- The
law allows a minor to begin taking driving lessons before reaching the age at
which he is permitted to receive a license. Thus
it is possible to begin
learning to drive a motorcycle (up to 50 cc) or a tractor at age 15, and most
types of private vehicle at
age 17.
- At
age 17, a minor may file a request to receive an apprentice pilot’s
license.
25. Summary
- The
Table below summarizes the rights and obligations of children according to the
legislature, as presented in this chapter. The
Table is organized by the age at
which the rights and obligations are granted, from youngest to oldest. The
Table is a basis for
the summary discussion that follows it.
Table 7
Definition of the child: summary of the rights and obligations
of minors
|
Law
|
Age
|
Full/partial right; restrictions
|
Age of legal capacity
|
Guardianship and Legal Capacity Law, section 4
|
18
|
earlier age of legal capacity if act is “in the manner of minors to
undertake” (section 6)
|
Completion of compulsory education
|
Compulsory Education Law 1949 Special Education Law 1988
|
16 (21 for those with special needs)
|
provided free to age 18
|
Legal age of employment
|
Youth Employment Law 1953, section 2
|
15 or completion of compulsory education
|
|
Table 7 (continued)
|
Issue
|
Law
|
Age
|
Full/Partial Right; Restrictions
|
Vacation employment
|
Youth Employment Law 1953, section 2A
|
14
|
|
Participation in artistic productions
|
Youth Employment Law 1953, section 4
|
under age 15 or during compulsory education
|
with consent
|
Civil and criminal liability
|
Penal Law, section 34F Civil Wrongs Ordinance [New Version]
section 9(a)
|
from age 12
|
|
Imprisonment
|
Youth (Trial, Punishment and Modes of Treatment) Law 1971
section 25
|
from age 14
|
to age 18, minors must be held separate from adults
|
Mandatory life imprisonment/ death penalty
|
Youth (Trial, Punishment and Modes of Treatment) Law 1971
section 25
|
from age 18
|
|
Detention without a court order
|
Youth (Trial, Punishment and Modes of Treatment) Law 1971
section 10
|
from age 12 12-13: 12 hours 14-18: 24 hours
|
includes detention as means of protection
|
Institutional placement instead of imprisonment
|
Youth (Trial, Punishment and Modes of Treatment) Law 1971
sections 3133
|
12-18
|
|
Testimony in court
|
Evidence Ordinance [New Version] 1971
|
any age
|
limited weight ascribed to testimony
|
Appointment of lawyer
|
Guardianship and Legal Capacity Law 1962, section 4
|
from age 18
|
|
Consensual sexual relations
|
Penal Law, section 345(3)
|
14-15 in marriage 16-17 under certain conditions
|
|
Medical care or consultation
|
|
from age 18
|
except abortion and AIDS testing (Discovery of AIDS in Minors Law 1996,
section 1(a))
|
Psychiatric hospitalization
|
Treatment of Mentally Ill Law 1991, section 4A
|
from age 15
|
consent of parents and child required, or court order
|
AIDS test without parental consent
|
Detection of AIDS Virus in Minors Law 1996
|
from age 14
|
conditional on restrictions of medical condition and physician’s
judgment; test may be done under age 14 with approval of committee
comprising
social worker and physician
|
Abortion
|
Penal Law 1977, section 316
|
any age
|
conditional on approval of abortion committee
|
Mandatory identity card
|
Population Registry Law 1965, section 25
|
from age 16
|
may receive identity card earlier with consent of representative
or chief registration clerk
|
Driver’s license
|
by type of vehicle
|
16: tractor, motorcycle up to 50 cc 17½: most private
vehicles 21: heavy and public vehicles
|
Marriage
|
Marriage Age Law 1950
|
from age 17
|
or 16 in case of pregnancy, or special circumstances with court
approval
|
Sale of alcohol
|
Penal Law, section 193a
|
forbidden to minors under age 18
|
no restriction on consumption
|
Right to vote
|
Basic Law: Knesset
|
from age 18
|
for local authorities from age 17
|
Right to be elected to Knesset
|
Basic Law: Knesset
|
from age 21
|
|
Child support from estate
|
Succession Law 1965
|
to age 18
|
|
Writing a will
|
Succession Law 1965
|
from age 18
|
|
Capacity to inherit
|
Succession Law 1965
|
any age
|
including prior to birth
|
Transfer of property
|
Guardianship and Legal Capacity Law 1962, section 6A
|
under age 18 only with consent of representative
|
|
Military draft
|
Defense Service Law 1986
|
age 18
|
from age 17 and up with parents’ written consent
|
Conversion
|
Guardianship and Legal Capacity Law 1962, section 13A(b)
|
from age 10, with minor’s consent in writing
|
minor cannot convert himself until age 18
|
Adoption
|
Adoption of Children Law 1981, section 30
|
birth to age 18
|
|
Hearing minor’s opinion regarding adoption
|
Adoption of Children Law 1981, section 7
|
from age 9
|
or earlier if child understands meaning of adoption
|
Adoptee’s access to information about biological family
|
Adoption of Children Law 1981, section 30b
|
from age 18
|
|
- As
can be seen in the Table, most rights and obligations begin at age 18. The
Table also indicates that the Israeli legislator tends
to see children age nine
or ten, or even younger, as individuals whose opinion regarding their identity
and sense of belonging to
their family should at least be heard. For example,
the legislator requires the court to hear the opinion of an adoptee regarding
the adoption beginning at age nine (despite the restrictions that may prevent
realizing this right), and requires the court to obtain
the minor’s
consent to conversion beginning at age ten. Further, it is accepted
practice, based on case law, to hear the opinion
of a minor from the age of ten
or 11 regarding the locus of custody, even though there is no binding
legislation in this matter.
As noted, there are no unequivocal guidelines
regarding how a minor’s opinion should be weighed and considered in the
above
matters (with the exception of conversion). Neither are there systematic
data on the extent to which the opinion of minors is indeed
heard and considered
in such matters.
- Receipt
of medical treatment without parental consent and the appointment of a lawyer by
the minor himself are considered legal actions.
Therefore, under the
Guardianship and Legal Capacity Law, a minor cannot himself consent to receive
medical treatment, nor can he
appoint legal counsel for
himself.
- The
legislation allows the provision of medical treatment with the consent of the
minor alone in only two extreme instances, which
society wishes to prevent or
encourage: performing an abortion, and performing a test for the AIDS virus.
In these two cases, if
the minor consents, the decision of whether to accept his
consent rests with the relevant professional (e.g., a physician), who is
instructed to determine the degree to which the minor is capable of making the
decision and understanding its consequences. Concerning
psychiatric care, the
consent of a minor from the age of 15, as well as of his guardian, must be
obtained, or else the decision must
be made by the court. In reality,
relatively young children, with the help of professionals, do make very grave
decisions about
their medical condition, even though the legislator does not
perceive them as being capable of making other serious decisions (e.g.,
a minor
may consent to an abortion, even though the legislator assumes she is not
capable of making the decision to take birth control
pills, which would preclude
the need for an abortion). In addition, minors are perceived as being incapable
of making routine intimate
decisions or decisions related to their medical
condition.
- The
Treatment of Mentally Ill Law, the relevant stipulations of the Youth (Care and
Supervision) Law, and the Detection of the AIDS
Virus in Minors Law, which were
passed in the 1990s, express the legislator’s increasing tendency to
recognize the right of
a child to consent to medical treatment without the
consent of his parent or guardian, as well as the need to weigh a minor’s
ability to do so according to his evolving capacity. This trend is also
reflected in the Ministry of Justice’s initiative
to amend the
Patients’ Rights Law regarding children. It is the Ministry’s
intention that this law enable minors of
a certain age to consent to routine
medical care themselves; that the law require obtaining the consent of a
minor, as well as of
his parent or guardian, to medical treatment that carries
risk; and that a relatively young minor be able to consent (with the help
of a
professional) to medical treatment that is in society’s
interest or that is an intimate matter (e.g., birth control,
psychological
care, treatment of a drug problem).
- To
date, the legislators and the courts in Israel have refrained from determining
the right of a minor to refuse to receive medical
treatment.
- Another
trend is to allow for independent legal representation of minors. Two laws that
were passed in recent years the Family Courts
Law and the stipulations of the
Youth Law regarding admission to a psychiatric hospital specifically order the
appointment of a
lawyer for a minor. This trend is getting stronger in light of
current practice.
- Minors
are criminally liable beginning at age 12 a rather young age, relative to the
ages at which other rights and obligations are
imposed. In this matter the law
reflects the perspective that it is legitimate to place responsibility on
minors, alongside the
perception that the transition
from childhood to adulthood is a gradual one, as may be seen in steps taken
regarding children who bear criminal liability. Some
punishments (the death
penalty, mandatory life imprisonment) are not imposed upon minors at all, while
others, such as detention
and imprisonment, are imposed with restrictions
concerning age, duration, and conditions. The law allows the use of a variety
of
punishments and special treatments for juvenile offenders.
- Israeli
legislation also includes laws that protect minors of various ages from harm or
exploitation. Aside from defense against
abuse and neglect and the obligation
to report these, the law protects minors up to age 14 (and in certain cases up
to age 18) from
exploitation through sexual relations, and minors up to age 17
from putative marriage. These protections, which are paternalistic
in nature,
restrict the rights of minors to some extent, although the restrictions are not
directly imposed on them but rather on
those who engage in sexual relations with
them or who marry them. Similarly, the law protects minors up to age 14 from
testifying
in certain criminal proceedings, and restricts the extraction of
testimony from them regarding certain offenses.
- Israeli
law allows minors to work from the age of 14 (during school vacation or in
special circumstances) or from the age of completion
of compulsory education.
The Youth Employment Law protects the right of a minor to attend school while
working, and protects minors
against harsh working conditions (such as night
shifts) and long working hours (see Chapter X).
- Most
specific laws do not require examining the individual capabilities of a child,
but rather define a certain age at which a right
is granted or an obligation
imposed. Only a few laws allow the court or professionals to grant a right or
impose an obligation based
on a child’s level of development, ability, or
circumstances. Some laws such as the Adoption of Children Law and the
Detection
of the AIDS Virus in Minors Law cite a certain age as a
“default”, while allowing deviation from it according to the
circumstances of a specific case. The Guardianship and Legal Capacity Law
recognizes the legal actions of minors as being “actions
that a minor
might perform”.
- Israeli
legislation concerning the capacity of children is not exceptionally consistent.
For example, a minor has the right to make
decisions regarding medical treatment
and consultation only at age 18, while he has the right to be heard in the
matter of psychiatric
hospitalization heard from the age of 15. Youths age 17
cannot refuse medical treatment or sign a contract, but a child is criminally
liable from the age of 12 and can be imprisoned from the age of 14. This
inconsistency may be a consequence of the writing and passage
of laws at
different times, such that each law is influenced by the prevailing attitudes
and beliefs about a child’s capacity,
as well as prevailing social needs
(e.g., the need to fight crime probably influenced determination of the age of
criminal liability).
- It
is a task of the committee to examine fundamental principles of the child and
the law, and their implementation in legislation
(see Chapter III) to strive for
harmony among the various laws concerning the rights and obligations of minors
of different ages.
V. GENERAL PRINCIPLES
- Articles
2,3,6 and 12 of the UN Convention on the Rights of the Child stipulate four
principles according to which States must act,
regarding children and their
rights:
- The
right to life, survival and physical, cognitive and emotional development
(article 6)
2. Nondiscrimination (article 2)
- The
“best interests of the child” as primary guiding principle in all
actions concerning children (article 3)
4. Respect for the views of the child (article 12)
- In
this chapter we will point to some of the major legislative and policy measures,
which are undertaken by Israel in order to support
the realization of these
principles. We will also indicate the major problems and challenges that face
Israeli society in achieving
more complete implementation of these rights. (See
also Chapters VII, VIII, IX and X.)
A. Article 6 of the Convention - The right to life,
survival and development
- The
right to life, survival and development is the most fundamental of the
principles set down in the Convention, and is the basis
for discussion of the
implementation of the other principles. The right to life, survival and
development includes the right to
health, physical development, development of
abilities and skills that enable an individual to live with dignity, and a
standard
of living that guarantees these rights.
- Israeli
law places responsibility for the life and development of the child on both
parents. Parents and other guardians have the
obligation (and the right) to
meet their child’s needs, including the need for education and vocational
training. Under the
Penal Law, it is possible to punish parents (or legal
guardians) who do not meet needs essential to the health and security of their
children (see Chapter VI). The term “essential needs” was recently
interpreted in a court ruling as including emotional
and social needs, in
keeping with the UN Convention.
- Although
responsibility for a child’s subsistence falls first and foremost on his
family, the State is responsible for helping
the family ensure a child’s
existence and development by providing social services. Voluntary organizations
also play an important
role in ensuring the welfare of children. Social
services and the policies that govern them are described in detail in the
chapters
of this report.
1. The right to life and physical development
- The
National Health Insurance Law 1994 guarantees the right of every child to health
services (preventive, primary, hospital and rehabilitative
care). Indeed,
primary health care and
hospital services are available to the majority of Israel’s children,
and efforts are being made to expand the accessibility
of these services to
include groups that to date have had less access to them (see Chapter VIII and
section B of this chapter).
- Israel
has a particularly welldeveloped system of preventive health services for
pregnant women and very young children. A national
network of family health
centers provides women and children with regular examinations and inoculations,
as well as consultation,
guidance and support, especially for weaker and atrisk
populations. In addition, women who give birth in a hospital are given a
grant
by the National Insurance Institute (Israel’s social security
administration), which is meant to cover the cost of hospitalization
and basic
equipment for the baby. Data indicate that the rate of mortality at childbirth,
the infant mortality rate, and the rate
of underweight births are very low in
Israel and continue to decline (see Chapter VIII).
- Some
preventive services are provided in elementary and secondary schools, although
not in sufficient quantity to meet all of the
needs of children or promote their
health. The few positions earmarked for preventive health staff in elementary
schools allow for
a limited number of routine examinations, but not for the
recommended extent of classes or guidance in prevention and health
promotion.
- The
services provided in secondary schools focus on preventing risk behaviors and
promoting health, and include programs on drug and
alcohol addiction, sex
education, and prevention of infectious diseases such as AIDS. It has been
claimed that the resources allocated
for these services are insufficient (see
Chapter VIII). Limited prevention and health promotion services are also
provided to youth
by the Ministry of Health and the sick funds.
- Until
recently, there were no systematic and comprehensive data on the health
behaviors of children and youth. For the first time,
a survey conducted in 1994
among children and youth in grades six through 11 revealed the status of Israeli
youth, compared to youth
in 23 other countries (Harel et al., 1997). As was
commonly believed, Israeli youth are less apt to engage in some risk behaviors
than are their peers in other countries. For example, the percentage of youth
in Israel who drink alcohol or smoke cigarettes is
lower than that of youth in
other countries. Similarly, 90% of Israeli youth eat fruit and vegetables at
least once a day the highest
percentage found among the countries that
participated in the survey. At the same time, the survey highlighted a number
of issues
for concern. For example, Israeli youth (especially young women) are
less apt to exercise than are their peers in other countries.
In addition, a
trend was identified of a decrease in the age at which children begin
experimenting with cigarette smoking, drugs
and alcohol. These findings may
indicate an increase in these risk behaviors among youth, and hence a need to
increase preventive
and health promotion activities among them. The rate of
youth violence was also found to be high in comparison with most countries
in
the study. A followup survey conduced in 1998 (as yet unpublished) showed a
similar trend.
- Another
area that arouses concern for the welfare of children and youth is that of
accidents, including accidents at and around home,
on the road, at school or
during social activities. About onequarter of the deaths of children are caused
by accidents. In recent
years,
efforts have been made to reduce car accidents through campaigns in the media
and in schools (including the participation of children
in safety patrols).
Survey findings indicate a need to continue these efforts and to emphasize
programs that promote safe behavior
and encourage compliance with safety
measures.
- Environmental
factors, such as water quality and pollution, also affect the health status of
Israel’s children. In recent years,
awareness has grown of the need to
address these issues much more seriously.
2. The right to fulfillment of basic needs
- Israel
employs various mechanisms to guarantee a basic level of income and standard of
living for its citizens in general, and for
families with children in
particular. Minimum income is guaranteed through a series of benefits for
children and income maintenance
benefits. The number of children in a family is
taken into account when calculating these benefits. Israel also offers programs
that help individuals and families find housing. These programs consider the
number of children in a family when determining eligibility
for loans, rental of
public housing, and other forms of assistance. The State also supports hostels
for youths who have no place
to live. In addition, government policy,
implemented (through the National Insurance Institute) in 1994, which aimed
to reduce the
dimensions of poverty overall, and among children in particular.
This involved increasing benefits for children of people who did
not serve in
the Israel Defense Forces (IDF) primarily Arabs; increasing child allowances
for large families and special groups;
and expanding the payment of benefits to
groups in which the incidence of poverty among children is particularly high
(see Chapter
VIII).
- Nevertheless,
poverty among children is high and arousing increasing concern. During the
mid1970s, the percentage of poor children
in Israel was about 10%; by 1995, it
had reached 23.2%. However, data for 1999 which were just released
indicate that poverty among
children has reached a new peak (26%). The
percentage of poor children is especially high among certain groups, including
large
families (with four or more children), singleparent families, Arab
families and immigrant families from Ethiopia (see section B of
this chapter and
Chapter VIII).
- Data
on the implications of poverty for the welfare of children and youth are
limited. What data do exist indicate that poor children
are overrepresented
among those who suffer from neglect and abuse, those who do not achieve minimal
levels of education, and those
who become involved in marginal and risk
behaviors such as crime and drug abuse.
The right to life, physical development and fulfillment of
basic needs: Main achievements
− Legally mandated universal health
coverage
− Preventive health services, nearly universal coverage for very young
children
− Low and declining rates of
− mortality of women in childbirth
− infant mortality
− underweight births
The right to life, physical development and fulfillment of
basic needs: Problems and challenges
− Insufficient preventive health services for
children over age five and in elementary schools
− Limited extent of prevention and health promotion
programs
− Large percentages of youth do not exercise; increasing trend of alcohol
and drug abuse
− High rate of youth violence relative to other
countries
− High prevalence of accidents and accidentbased
injuries
− Poverty among children has grown since 1970 and is a growing and major
concern
3. Emotional, cognitive and social development, and the
acquisition of skills
- Israel
offers services designed to support all aspects of the development of children,
from early childhood to adulthood. As noted,
family health centers play an
important role in the development of very young children. This and other health
services identify
children with developmental difficulties and refer them to
child development centers for treatment.
Naturally, the education
system supports the cognitive and social development of children and youth.
National expenditure for education,
which is almost 10% of the Gross National
Product, has increased consistently since the early 1990s.
- The
Compulsory Education Law mandates free education for all children from the age
of five and for children with special needs who
are eligible for special
education from the age of three. However, the education system plays a central
role in the development
of children from an even earlier age. A large
percentage of Jewish children attend preschool beginning at age two, and the
majority
of Jewish children age three or four attend preschools that are under
the surveillance of the Ministry of Education. The rates of
preschool
attendance are much lower among the Arab population, although they are
increasing (see Chapter IX).
- Precompulsory
kindergartens utilize a slidingscale fee, such that families with very low
income receive a significant discount. In
some towns, precompulsory
kindergartens are free or available at a minimal cost. There is a plan to
expand this program to more
towns and villages in the coming school
year.
- Elementary
and secondary school attendance are almost universal. The percentage of Jewish
students who attend school remains large
through 12th grade (age 17), reaching
about 96.5% among 14 to 17yearolds. The percentage is also lower among
immigrants. The percentage
of Arabs who attend school is much lower, and is a
major source of concern (see section B of this chapter). Dropout rates are also
higher among some groups of new immigrants. The percentages of both Jewish and
Arab students who attend school has increased in
the past two decades, due to a
policy of reducing the dropout rate as much as possible.
- Matriculation
examinations are a central indicator of the success of the education system, as
well as being a key to acceptance at
institutions of higher education. Receipt
of a full matriculation certificate by the largest possible number of students
is a primary
goal of the education system. Since the late 1980s, the percentage
of students eligible for a matriculation certificate has been
increasing.
Nevertheless, nearly 60% of all 17yearold students are still not eligible for a
certificate. The rate of matriculation
is much lower among Arab than among
Jewish students and, within the Jewish population, it is particularly low among
the Ethiopian
Immigrants.
- Beyond
the problem of school dropouts, there is also a significant problem of youth who
are in school but who are either not attending
school regularly or fully
participating in the educational process. A recent report (Cohen et al., 2000)
has for the first time
attempted to estimate the scope of this problem, which
well exceeds the extent of youth who have actually dropped out of school.
It is
very important to address the need to provide meaningful educational and career
tracks for those students who are not able
to achieve full
matriculation.
- A
variety of programs have been developed to address the needs of the youth who
have dropped out as well as those of the weaker students
within the schools.
However, these programs do not reflect a uniform policy: there is little
evidence of their effectiveness and
their extent and dissemination within the
school system do not match the extent of need.
Education, cognitive and social development and acquisition
of skills: Main achievements
− Preschool attendance rates are high among Jews
and rising among Arabs
− Nearly universal elementary school attendance rates
− High and rising secondary school attendance rates (especially among
Jews)
− Increasing percentages of students eligible for a matriculation
certificate
− Development of a variety of programs and support services that prevent
dropping out and promote weaker students
− Significant role of youth movements and community centers in afterschool
frameworks
Education, cognitive and social development and acquisition
of skills: Problems and challenges
− The Compulsory Education Law has not been
fully implemented for children ages 35
− Relatively high dropout rates among Arabs and
immigrants
− Evidence of extensive “hidden dropping
out”
− More than 60% of all youth are still not eligible for a matriculation
certificate
− Unclear to what extent the variety and level of education tracks meet
the needs of youth
− No uniform policy covering programs to promote weaker students and
address those who have dropped out; their scope is limited
and their efficiency
has not been examined
− Concern about declining participation in and funding of informal
activities
- The
education system’s mission is not only the formal education of youth, but
also the transmission of positive values and social
skills and the fostering of
a greater awareness of and concern for the community. These goals are achieved
both inside and outside
the system through a variety of informal education
programs.
- Informal
education within the schools includes a fixed number of weekly hours with the
homeroom teacher and student participation
in volunteer activities (such as
personal commitment and youth leadership programs; see Chapter IX). Despite the
variety of programs
available, most are not part of the compulsory curriculum,
such that their implementation depends upon the priorities of a school’s
principal. Currently, only a small percentage of students participate in these
programs.
- Outside
of the education system, activities are offered by youth movements, community
centers, and social clubs. These activities
offer children and youth
opportunities to develop and exercise the social and civic skills they will need
to play a role in the community
as adults. Currently, a significant percentage
(25%) of youth participate in youth movements, and a similar percentage
participate
in community center programs. However, there is a decline in
participation rates, as well as in funding, which is a major cause
of concern
for the future of these activities.
- The
emotional development of children and youth also receives attention. The school
system has psychological and counseling services
designed for children, youth,
and parents who have problems adjusting to the education system or meeting its
demands. However, there
is evidence that these services are not offered on a
large enough scale to provide adequate solutions.
- Counseling
and treatment for emotional difficulties are also available to children and
youth through mental health clinics, which
are operated by the sick funds and
the Ministry of Health. Here, too, there is evidence that the scope of these
services, their
geographic dispersion, and their availability and accessibility
to various populations do not meet the needs. The Ministry of Health
is aware
of the need to expand these services, as well as to intensify cooperation with
schools and social services. To this end,
a new model of treatment center for
children and youth now operates in a small number of towns around the country.
The Ministry
of Education and the Ministry of Labor and Social Affairs also
sponsor treatment and emotional counseling for children and youth
through local
social services and youth promotion units. These services tend to focus on
underprivileged children and youth at risk.
However, these services are not
universally available and problems of coordination among them create situations
in which youth are
not provided with the services they need.
4. The right to life, survival and development of children
with disabilities
- Guaranteeing
the rights of children with disabilities presents a special challenge. These
children represent 8.7% of children age
18 and under in Israel. In recent
years, there have been notable developments in legislation: the passage of a
law granting rights
to disabled children (the Special Education Law 1988); the
expansion of disability benefits to newborn infants (previously granted
from the
age of three); the passage of the Safe Transportation of Invalid Children Law
1994; and the passage of the Equal Rights
for People with Disabilities Law 1998;
and the Rehabilitative Daycare Centers Law 2000. Much attention has been
devoted to the needs
of disabled children, and services have been designed to
assist them and their families, promote their development, and contribute
to
their selfactualization. These services include child disability allowances
(provided by the National Insurance Institute), rehabilitation
services
(available through the health and education systems), and a range of educational
services provided under the Special Education
Law. Volunteer organizations also
develop and provide services to disabled children (see Chapter VIII).
- However,
there have been major difficulties in the implementation of these laws. Several
recent studies, including the first national
study of disabled children, raise a
number of issues. First, there is evidence that the extent of coverage of
rehabilitation and
development services is not sufficient. For example, some
groups children with mild disabilities, learning disabilities, and emotional
and behavioral problems are not entitled to services under any law. In other
cases, existing services are not adequate to meet
needs or are not accessible,
or else there is insufficient awareness of developmental problems. Children in
the Arab, ultraOrthodox
Jewish, immigrant, and lowincome populations are
particularly vulnerable to these inadequacies (Naon et al., 2000).
- Second,
the system of services for disabled children is very complex, and uncoordinated.
Disabled children and their parents have
trouble using services due to the
complexity of the system, as well as to a lack of uptodate information on
eligibility requirements
and application procedures. Despite the efforts of
various organizations to provide uptodate information, this problem still
plagues
parents, service providers, and policymakers.
- Problems
also arise when determining eligibility for special education. Parents have
been given special status on placement committees,
and legislative efforts have
been made to include them as full partners in the process of placement,
treatment and rehabilitation.
Nevertheless, there is considerable evidence that
this process is characterized by a lack of information, by problems transmitting
information, and by misunderstandings between parents and professionals.
Organizations representing parents and professionals alike
are aware that this
problem may impede a child’s opportunity to receive appropriate education
and treatment. In recent years,
service providers have debated the creation of
uniform definitions and policies, and studies have been conducted into how to
better
coordinate services.
- To
address the complexity of the service system, it is necessary to define more
clearly the responsibility of each of the different
legislative frameworks and
service systems and to introduce mechanisms to coordinate care at the case level
and to assure an adequate
flow of information among professionals and to
clients.
- Still
another issue is that of the willingness to “mainstream” disabled
children in frameworks for the general child population.
The Special Education
Law 1988 obligates the integration of children with special needs into the
“less restrictive frameworks”.
However, in the implementation of
the law, a clear priority has been given to financing services for children
within special education
frameworks who have a defined individual entitlement as
opposed to children who are mainstreamed into regular classrooms. In recent
years efforts have been made to integrate children with special needs into
regular classrooms. However, these efforts have focused
on specific groups
(blind or visually impaired students, deaf or hearingimpaired students) rather
than on the entire population of
disabled children. The way in which resources
are allocated under the Special Education Law that is, primarily to special
education
frameworks and special education classes in regular frameworks also
makes it difficult to comprehensively integrate disabled children
into regular
frameworks. Mainstreaming is also hampered by lack of training of teachers and
other personnel in the regular school
system to address the needs of disabled
children within the regular classroom and school. The lack of access for the
handicapped
to schools, public buildings and recreation centers also creates a
burrier to mainstreaming. The committee to examine comprehensive
legislation on
the rights of the disabled has warned that lack of access is a one of the main
reasons the disabled cannot realize
their rights or participate actively in
social and community life.
Children with disabilities: main achievements
− Extensive legislation preserving the rights of
children with disabilities:
− expansion of disabled child benefits
− legislation and progress implementing the Special Education Law
− Equal Rights for People with Disabilities Law
− Rehabilitative Daycare Centers Law
− Declining trend in the number of students in special
education
Children with disabilities: challenges
− Large gaps between
needs and services
− Service system is complex and lacks coordination
− Problems involving parents and children, primarily in the process of
placement in special education
− Despite commitment to mainstreaming in education, financing gives
priority to segregated special education frameworks
− “Mainstreaming” of children with disabilities into
activities for all children only just beginning
B. Article 2 of the Convention - Nondiscrimination and equal
opportunity
- Nondiscrimination
is a central principle of Israeli legislation. Equality among population groups
is promised in the country’s
Declaration of Independence and in
legislation, and the creation of equal opportunity for all citizens has guided
social policy since
the establishment of the State.
- This
is a major challenge in a society that is as ethically diverse as is Israel.
The challenge is complicated by the correlation
between sociodemographic
characteristics and ethnic origin which influence the ability to compete for
social and economic status.
For example, different population groups differ in
family size, parents’ education, and the participation of women in the
work force.
- In
addition to legislation and policy designed to prevent discrimination, steps are
constantly being taken to improve the allocation
of resources and development of
services so as to reduce gaps and promote equality among population subgroups.
At the same time,
Israel maintains a policy of helping each group preserve its
cultural heritage (for example, by granting the right to choose the
type of
education one’s children will receive, by allocating resources to preserve
cultural tradition). Nevertheless, significant
gaps persist among groups in
Israeli society. These are a result of both the patterns of allocation and use
of services, and inherent
differences among these groups.
1. Gaps among subgroups of the Jewish population
- One
pivotal area of difference is that between Jews whose families immigrated to
Israel from Europe and the Americas, and those whose
families immigrated from
Asia and Africa. However, data on gaps among subgroups of the child population
is limited, as the majority
of children (and of their parents) were born in
Israel. Moreover, many children have parents of differing ethnic
backgrounds.
- In
recent years, two groups of immigrants with radically different social and
cultural characteristics have arrived in Israel: immigrants
from the former
Soviet Union, and immigrants from Ethiopia. Immigrant children and youth are
facing major difficulties and in general
experience higher rates of dropping out
of school and of social deviance. The educational gap is particularly great for
Ethiopian
immigrants and for certain groups of immigrants from the southern
parts of the Former Soviet Union.
- In
recent years, concern about the quality of the integration of immigrant children
into the school system has led to a range of initiatives
to promote their
educational and social integration (see Chapter IX). No systematic, reliable
data exist on the educational integration
of children and youth from the former
Soviet Union.
- The
absorption of Ethiopian immigrant children presents a particular challenge,
given the dramatic cultural transition they must make
and the socioeconomic
status, demographic composition, and level of education of their parents.
Policies have been developed to
promote equal opportunity for these children and
to support their absorption into the school system.
Nevertheless,
a large percentage of them have scholastic problems and do not regularly attend
school. The rates of school attendance
and of eligibility for matriculation
certificates among Ethiopian youth are low, compared to the general population.
2. Gaps between Jews and Arabs
- Serious
gaps exist in most of the areas reviewed by this report between the Arab and
Jewish populations of Israel: Arab children
and youth are at a disadvantage,
relative to their Jewish peers. For example, infant mortality rates and
accident rates are higher
among the Arab than the Jewish population, and more
Arab than Jewish children suffer from severe disabilities or live in poverty.
Fewer Arab than Jewish children attend preschools and secondary schools, and
fewer Arab youth are eligible for a matriculation certificate.
There is broad
recognition and agreement that a major factor contributing to the gaps is
insufficient allocation of resources by
both the national government and the
local Arab authorities. In order to address these gaps, there is a need to
overcome significant
differences in the demographic composition of the Arab and
Jewish populations, such as differences in family size and parents’
level
of education.
- This
report identifies a number of areas in which the resources allocated to the Arab
population are or were insufficient, and less
than those allocated to the Jewish
population. These include the range of and accessibility to preventive and
primary health services,
diagnostic services, rehabilitation and special
education for disabled children, child allowances, education (especially for
weaker
populations), and support services (such as psychological counseling,
programs to prevent dropping out), and training of educational
manpower.
- The
recognition of this situation has led to a variety of measures to address it.
The implementation of the National Health Insurance
Law in 1995 provided the
sick funds with incentives to serve weaker populations, including the Arab
population; this led to accelerated
development of primary health care services
and expansion of preventive services for this population. Implementation of the
Special
Education Law has brought about an increase in the number of Arab
students participating in special education programs, and to an
increase in the
scope of services for disabled Arab children. Benefits for Arab children in
large families have been equalized and
expanded.
- In
the field of education, initiatives have been taken to increase the resources
allocated to Arab children and youth. These initiatives
followed the adoption
of several fiveyear plans for the Arab education system, including a significant
increase in support services
and special programs in schools, the development of
training programs for kindergarten and school teachers, and the construction
of
classrooms and facilities. There have also been initiatives to revise the
educational goals of the Israeli school system so as
to adapt them to the Arab
sector.
- As
in the overall population, there has been significant progress in a number of
areas, such as a decline in the infant mortality
rate, an increase in school
attendance rates, and an increase in the percentage of students eligible for a
matriculation certificate
in the Arab sector. However, in many areas the gaps
have not decreased; the most serious gaps remain in poverty rates and
educational
achievement.
- Data
also indicate gaps among subgroups of the Arab population. In most cases, the
situation of Christian Arabs and Druze is better
than that of Moslem Arabs. The
health, welfare and education of Bedouin children, particularly those living in
unrecognized settlements,
fall far below those of the general population of Arab
children a situation that demands special attention (see Chapters VIII and
IX).
Gaps between Jews and Arabs: policy directions
Steps have been taken to reduce gaps in many
areas:
− changes in the structure of National Insurance Institute benefits for
children
− National Health Insurance Law passed in 1994
− changes in the education system, primarily in
infrastructure
Gaps between Jews and Arabs: challenges
− Gaps remain in the majority of areas, and have
not decreased consistently over time:
− Differential measures of health status
− The extent of poverty
− Attendance rates at preschools and secondary schools
− Achievements on matriculation examinations
− Percentages of children at risk
− In many areas, the extent of services provided to the Arab population is
less than that provided to the Jewish population:
− Services for the disabled
− Support services and programs in the education system (gaps are not
declining)
− Child welfare services
3. Children of foreign workers
- A
large number of foreign workers have come to Israel in recent years. No
systematic data are available on their number, the number
of children living
with them, or their living conditions. Some estimate that between 2,500 and
3,000 children of foreign workers
now live in Israel. As the arrival of foreign
workers is a recent phenomenon, and as many of the foreign workers remain in
Israel
illegally, no national or legal system has been established to provide
their children with education, health and welfare services.
However, the
government has begun to make arrangements to provide services in a systematic,
comprehensive manner, and there is extensive
activity surrounding this issue in
the Knesset (see Chapters VIII and IX).
C. Article 3 of the Convention - The best interests of the
child
1. The “best interests of the child” as a guiding
principle
- In
Israeli law, the “best interests of the child” is recognized as a
guiding principle and a primary consideration in
decisionmaking regarding the
lives of children. Usually, those who decide a child’s fate are his
parents. However, when there
is a need to protect the child, the parents’
role may be assumed by the courts, child protection officers, or other social
service providers.
- The
concept of “the best interests of the child” is not defined by law
(see Chapter II). Rather, it is being defined
gradually through court rulings
and the decisions of authorities and agencies that serve children, on a
casebycase basis and in light
of the situation of each child and his family, and
the child’s own wishes. This principle may thus have different meanings,
depending on the values and cultural norms of the society (or social group) in
which the child and his family live, and on the beliefs
and expectations of
those making decisions in the child’s interest.
- Nevertheless,
the principle of the “best interests of the child” serves as a
measure of the extent to which a child is
being cared for properly by his
parents, and is used as the basis for deciding the course of the child’s
life (e.g., custody
and visitation rights). A variety of criteria are applied
in determining the best interests of a child. For example, in custody
proceedings, a judge may consult with and consider the reports of child
protection officers, who are obligated to present a factual
assessment of a
child’s situation and to recommend the course of action they feel best
serves the child’s best interests
(see Chapter VII).
- The
principle of the best interests of the child is also reflected in the structure
of the juvenile justice system. A minor who commits
a crime is treated
differently than is an adult. The agencies that handle minors accused of
committing a crime have two major goals:
to keep the minor from being labeled
as a criminal, and to give him an opportunity for rehabilitation. These goals
are clearly
reflected in court rulings, most of which are made only after
consultation with the speciallytrained child welfare professionals
who accompany
juvenile suspects from indictment through treatment, and are geared toward
rehabilitation.
- Concern
for the best interests of the child also requires safeguards against
exploitation such as in the workplace, sexual abuse,
and exposure to crime. The
public is increasingly aware of the need to protect children and youth from
exploitation. This has led
to legislative and policy initiatives that protect
minors.
2. Preserving the best interests of the child in child welfare
proceedings
- A
variety of legal procedures and services, designed to protect the best interests
of the child, are implemented by government ministries,
local authorities and
volunteer organizations.
- The
key agent responsible for protecting children from harm due to a lack of proper
parental care is the social welfare system. Alongside
it are the education and
health systems, which potentially play a role in identifying cases in which
there is a need to protect children.
The Ministry of Labor and Social Affairs
has in recent years increased the resources allocated for treating children at
risk and
preventing domestic violence. As part of this initiative, innovative
intervention methods are being introduced into the service
system.
- Services
that aim to protect children lie along a continuum, which ranges from support
and training for families that have difficulty
ensuring the best interests of
their children, to frameworks and mechanisms that provide these children with
immediate, shortterm
protection to longterm, alternative care outside the home.
Examination of these services raises a number of issues about how the
principle
of the best interests of the child and his protection are
ensured.
- In
order to protect children, it is first necessary to identify those at risk. In
Israel, a variety of mechanisms are used to identify
children at risk.
Legislation requires reporting cases in which there is a reasonable suspicion
that a child is suffering from abuse
or neglect. An infrastructure of services
family health centers, primary health care centers, preschools, and elementary
and secondary
schools provides children with universal coverage. As a result,
nearly all of Israel’s children come into contact with professionals
who
can identify risk
situations at an early stage and who know how to make referrals when
necessary. In addition, children who need help may contact the
ombudsman of the
National Council for the Child or other voluntary organization.
- Data
indicate that a relatively large percentage (about 17%) of Israeli children are
known to some social service organization as
being at risk. However, data also
indicate that the extent of services provided does not match the scope or type
of need of children
at risk. About 10% of the children who are known to social
welfare departments receive some community service, while an additional
4% have
been placed outside their home by the Service for Children and Youth of the
Ministry of Labor and Social Affairs. A survey
revealed that even children and
families at high risk have serious unmet needs. The limited scope of the
services available and
their unequal geographic distribution impair the
system’s ability to successfully help parents care for their children and
to adequately protect children.
- The
UN Convention on the Rights of the Child requires that the State signatories
implement measures to protect children, taking into
consideration the rights and
duties of their parents or guardians. In this way, the Convention expresses the
importance of helping
parents fulfill their responsibilities toward their
children.
- This
principle finds expression in some of the principles and operating structures of
Israel’s child welfare system, which is
part of the general social welfare
system. It aim to provide a “onestop” response to a range of needs
and problems,
which may arise in family life. In addition, some of the
innovative models introduced in recent years reflect a familyfocused, rather
than an exclusively childfocused approach, and aim not only to provide for the
child but to support the family as part of the rehabilitative
process.
- Nevertheless,
the majority of services that are provided on a broad scale focus on the child,
rather than on the family. This is
illustrated by the emphasis on outofhome
care and by the small number of programs that return children to their families
or maintain
the relationship between children in outofhome placements and their
parents. In the community, as well, the most prevalent methods
of intervention
involve placement in a daycare center, or in family day care, or in afterschool
programs. These programs often do
not address the needs of the parents or of
the family as a whole.
- Preserving
the best interests of the child while maintaining the rights and
responsibilities of parents is reflected in parental involvement
in
decisionmaking. Courts are obliged to hear parents in cases involving children.
The involvement of both parents and children
in choosing the appropriate
intervention is stipulated in the guidelines of the decisionmaking committees
for children at risk that
exist in every local authority (Dolev et al., 2000).
A recent study of these committees indicates that the extent to which these
guidelines are followed is increasing: In twothirds of the cases, a member of
the family (child, parent or both) is present at the
committee meetings.
However, the study also indicates that the participation of parents and children
is not always effective: They
are not present during decisionmaking, and
professionals lack the training and skills to meaningfully include them in
choosing an
appropriate intervention.
3. Preserving the best interests of the child in outofhome
care
- Between
65,000 and 75,000 (3%) of the children and youth in Israel live apart from their
families, in frameworks supervised by the
government. Most (some 55,000) of
these children are between the ages of 14 and 18, and attend boarding schools
(usually as the
result of a decision made by them and their families). Far
fewer (about 10,000) children and youth have been placed outside their
homes by
child and family services, most (8,500) of them in boarding schools, and the
remainder (1,500) in foster families. Other,
small groups of children are also
placed outofhome: Some reside in facilities operated by the Youth Protection
Authority (which
is responsible for the placement of delinquent and
neardelinquent youth); some are disabled children who were removed from their
homes by welfare services; and some have been admitted to psychiatric hospitals.
Legislation and regulations govern the operation
and surveillance of each of
these frameworks (see Chapters VIII and IX).
- Since
the late 1980s, efforts have been made to improve the level of care in and the
surveillance of outofhome frameworks, and to
monitor the quality of care and its
outcomes. For example, new, comprehensive surveillance criteria and methods
have been introduced
in residential facilities. An important feature of these
new system is that they consider the opinions of resident children as part
of
the process of evaluating quality. At the same time, the Youth Protection
Authority is developing a system of monitoring the
outcomes of care of children
in residences under its auspices.
- Efforts
are being made to improve foster care, as the qualifications of many foster
families have also come under criticism. These
include the development of a
training program for foster families, which will stress the importance of the
child’s relationship
with his biological parents, and legislation defining
the role and responsibilities of the foster family. Efforts are being made
to
provide more guidance and assistance to foster families and to more carefully
screen these families in advance. An information
system developed to monitor
the care of children in foster families has been partially
implemented.
- Examination
of the extent to which the best interests of the child is safeguarded in
outofhome frameworks raises several issues.
Children in institutions may
receive their education within schools located in the institution or may attend
schools in the local
community. In general, it has been found that these
children have poor scholastic achievements and that the cooperation between
the
residential facility and the schools is inadequate. It seems that more
resources need to be allocated to schools that operate
within residential
settings and to afterschool enrichment programs. In addition, the
responsibilities and contact between schools
and residential settings must be
clearly defined. Another challenge is assuring appropriate staff within the
boarding school frameworks.
- The
availability of professional and paraprofessional personnel in outofhome care is
also an issue. A committee of experts has established
criteria for hiring
personnel for different roles and at different levels. However, these criteria
are not always met and there
are limited training opportunities, especially for
child care staff.
- The
length of stay in an outofhome framework, whether a boarding school or a
foster family, is also at issue. Generally, a child’s
stay in one of
these frameworks is long; even though these are defined as being shortterm
solutions, rarely does a child return to
his
biological family.
- Another
issue concerning children in outofhome frameworks is their relationship with
their parents. The welfare system is aware of
the importance of maintaining a
relationship between parents and the children, and a special program has been
designed for this purpose.
A committee of experts that set standards for
maintaining the relationship between boarding school students and their parents
recommended
that schools regularly report to parents on their child’s
status, set times for telephone calls between parent and child, prearrange
vacation dates, and host at least one event per year to which parents are
invited. The Youth Protection Authority has also set guidelines
and methods for
including parents in the care of their child and reinforcing their relationship
with their child.
- Despite
all of these efforts, findings from several studies indicate that policies that
foster the relationship between natural parents
and their children have not been
uniformly or consistently implemented. In many cases, parents are not well
informed about their
child’s life at boarding school, and are not involved
in their child’s care.
- Children
with serious mental health or behavior problems are often admitted to
psychiatric hospitals, due to a lack of more suitable
solutions, even though
they don’t need the services provided by a psychiatric hospital. In order
to provide more suitable
solutions to the needs of such children, during the
1990s the Ministry of Labor and Social Affairs established
posthospitalization units within existing boarding schools. These
frameworks are designed to enable children with a serious emotional
disturbance
to make the transition back to the community after having been in a psychiatric
hospital. They aim to be an alternative
to psychiatric hospitals, and to
prevent long and unnecessary hospitalization of children. In 1996, six
posthospitalization units
were in operation.
4. Preserving the best interests of the child in the criminal
justice system
- As
has been noted, the principle of protecting the best interests of the child is
expressed in the juvenile justice system by focusing
on rehabilitation rather
than on punishment. However, there are two sources of concern as to the extent
to which the best interests
of children and youth are protected in this
system.
- First,
there is evidence that despite the system’s orientation toward
rehabilitation, most youth who have been detained or even
convicted of
committing an offense do not receive adequate rehabilitation and services.
Youths who have been detained but whose
cases have been closed are referred to
the Youth Probation Service, but are rarely treated as they are not obligated to
report to
the Service. Youths who are being tried receive some intervention
from a parole officer, although only 25% of them receive longterm
rehabilitation
intervention. Concern has been expressed that the conditions of incarceration
for minors who have committed a serious
offense do not allow for meaningful
rehabilitative intervention. The lack of closed rehabilitation facilities
(especially for Arabs
and adolescent girls) also presents a serious problem.
- The
system has been criticized for protecting the youth offender at the expense of
preserving his other rights, such as his right
to legal representation.
Legislative initiatives have been proposed to remedy this situation, for example
by guaranteeing proper
legal representation of minors, and amending current law
to redress oversights.
- Criticism
has also been leveled against the actual implementation of the procedures
designed to ensure the best interests and the
rights of the child. According to
officials in the criminal justice system and in children’s rights
organizations, despite
marked improvement in the protection of children’s
rights in criminal proceedings, infringement of rights still exists. On
the
other hand, police officers have questioned the consequences of implementing
some of the measures designed to protect children.
Recent studies indicate that
youth workers on the police force differ in the extent to which they implement
such measures and in
their attitudes toward children’s rights.
The best interests of the child: achievements
− There are mechanisms to ensure the receipt of
extensive and professional assessments that will facilitate decisionmaking on
the basis of the best interests of the child
− The best interests of the child are protected in the sentencing and
punishment of minors through emphasis on rehabilitation
and avoidance of
stigmatization
− Many new procedures and a number of new models for providing protective
services to children have been developed in recent
years
− Development of new systems to ensure the quality of care in out-of-home
frameworks
The best interests of the child: problems and
challenges
In child welfare proceedings
− Services that protect children and preserve their best interests are
limited:
− Very significant unmet needs
− Innovative best practice approaches are not broadly
disseminated
− Services do not meet the needs of the family as a whole
− Involvement of parents in decisions about and the process of
intervention is only just beginning
In out-of-home placement
− Protecting the best interests of children in out-of-home frameworks
requires:
− Improving scholastic achievement and coordination with schools
− There is a need to improve the quality of staff in residential
facilities and support provided to foster families
− Contact between children in out of home placements with their parents is
often not maintained
In the criminal justice system
− The regulations to preserve the best interests of the child in the
criminal justice system are not always implemented
− Rehabilitation of minors who have committed an offense is partial; many
minors who have committed an offense do not receive
rehabilitation
D. Article 12 of the Convention - Respect for the views of
the child
1.
The right of a minor to be heard, and respect for a minor’s views
in matters affecting him
- Laws
and policies stipulate that the opinion of a child should be heard and
considered in matters concerning him (see Chapters VIIX).
However, despite the
tendency of both laws and administrative procedures to recommend, and even
demand, that a child’s opinion
be heard, there is no consistent general
policy. Although no systematic data are available, anecdotal evidence indicates
that hearing
a child’s opinion often depends upon the attitude and opinion
of the professional (e.g., judge, social worker) involved in
the relevant
decisions and procedures.
- In
only a small number of situations is the consent of a minor (or a minor over a
certain age) required before a decision is made
or proceedings undertaken. In
proceedings involving conversion, adoption, or admission to a psychiatric
hospital, the consent of
the minor (once he has reached an age established by
law) is required before action can be taken. Courts are allowed to rule against
the minor’s wishes (in the case of admission to a psychiatric hospital) or
not to hear the minor’s opinion (in the case
of adoption) if this is
judged to be in the child’s best interests (see Chapters IV, VII and
VIII).
- Judges
and administrators are required to hear and consider a minor’s opinion
(though not to obtain his consent) when ruling
or making a decision in matters
of custody and intervention under the Youth (Care and Supervision) Law and the
Youth (Trial, Punishment
and Modes of Treatment) Law. However, there are no
specific guidelines regarding how minors are to be heard and considered in each
situation, nor is there systematic information about the extent to which their
opinions are actually heard and taken into account.
There is some evidence that
it
is indeed becoming more common to hear the opinions of minors in cases of
custody and decisions related to the Youth Law. For example,
according to the
national child protection officer, the degree to which a minor’s opinion
is heard and considered in cases
pertaining to the Youth Law depends largely on
the presiding judge. While some judges tend to hear minors, others rarely do.
The
Youth Protection Authority requires that youth participate in the periodic
evaluation committee meetings that are held in boarding
schools under its
auspices. Specifically, students must be allowed to participate actively in at
least part of the meeting, and the
committee must hear their opinion about their
status, treatment methods, and interventions. This requirement is indeed
fulfilled
in practice.
- It
is also noteworthy that there are procedures in which it is not even mandatory
to hear or consider a minor’s opinion. For
example, parents are allowed to
change their child’s name without his agreement, and can consent to
medical treatment for him
(except in cases in which this right is reserved for
the court). Neither children nor parents have a formal position on the municipal
or local decision committees that decide on matters of community intervention
and removal of a child from his home. Nevertheless,
the regulations governing
these committees recommend that children and parents participate in at least
some of the committee’s
discussions. Children also have no voice in
decisions concerning the school they will attend, although parents do. Children
who are
candidates for special education do not participate in the placement
committees that determine their eligibility, but the participation
of their
parents is mandatory. Such placement committees are allowed to invite a child to
present his opinion, but there are no data
on the extent to which they do
so.
2. Legal representation of minors
- Under
the Guardianship and Legal Capacity Law 1962, parents or guardians are appointed
by the court to represent a minor in legal
proceedings; they may appoint someone
else to represent their child. The law authorizes the court to appoint a
representative for
the child (a legal guardian or attorney) if necessary. Legal
instructions and case law emphasize the importance of the appointment,
especially when it is clear that the interests of the minor may be harmed if he
does not have separate representation. They also
emphasize the right of the
child to be heard when there is a conflict between him and his parents, as
stipulated by article 12 of
the Convention (see for example Family Court Appeal
(Tel Aviv) 1009/00 Anonymous Plaintiff v. Anonymous Defendant (not yet
published)). The implementation of these legal provisions is still not
widespread.
- However,
there is a growing tendency to allow the appointment of a representative for a
minor without his parents’ consent in
an increasing variety of cases. Two
recent laws, which concern admission to a psychiatric hospital the Family
Courts Law and the
1995 amendment to the Youth Law specifically mention
appointing a representative for a minor. The increased representation of minors
in criminal and civil proceedings, would seem to indicate that this practice is
now “one that minors would perform”,
and thus one that they are
competent to perform under the Guardianship and Legal Capacity Law 1962. The
establishment of a public
defense attorney for minors is enabling many more
minors to be represented in criminal proceedings. However, as noted, the
general
right to separate representation of minors is not set in law although
it may be inferred from case law.
- Respect
for the child’s opinion is also reflected in his involvement in his school
and community. Increasingly, students are
encouraged to get involved in their
school. In fact, the Ministry of Education views this as a right of students
and parents, and
has defined the participation and responsibility of students in
making and enforcing decisions concerning schools and education.
For example,
the Ministry has recommended that students be involved in determining curricula
and in the choice of their course of
study (i.e. choosing major and minor
subjects). It also recommends allowing students to help establish bylaws and
express their
opinions and needs. It is not clear to what extent these
recommendations are being followed. (This issue is addressed by the new
Pupils’ Rights Law 2000 see Chapters VI and IX.)
- Community
schools are another way of involving children and youth in their education:
They allow in fact require student involvement
in decisions that influence
school policy and programs. Further, they encourage students to get involved in
the community, and community
residents to get involved in the school. These
schools are run by committees comprising representatives of the school
administration,
teachers, parents, students, the local authority, and other
community institutions (see Chapter IX).
- The
extent to which students feel that their opinions are being taken seriously at
school and that their involvement is being encouraged
is revealed by the results
of an international comparative survey of Israel and 23 other countries (Harel
et al., 1997). Some 40%
of Israel’s students feel they are involved in
setting school rules and that the rules are not too strict. Sixty percent of
them feel that their teachers encourage them to express their opinion in class.
Although these percentages are larger than in most
of the other countries in the
study, they nevertheless indicate that there is much room for improvement.
- Both
in and outside of school, a variety of programs encourage youth to become
involved in their community. These programs give youth
the opportunity to
contribute to their community and peers, as well as to learn skills and gain
experience as leaders (see Chapter
IX). In recent years, the umbrella
organization of community centers has developed a new approach to planning
activities for youth,
which is based on empowering the youths themselves in
planning the programs and even independently managing them. The centers are
also striving to involve the youth in programs that benefit the entire
community.
- Traditionally,
youth movements were an important part of the experience of Israeli youth. They
inculcated in these youth a positive
attitude toward involvement in community
and country. Today, youth groups still enable youth to plan their own
activities, express
their opinions, make decisions, and learn leadership skills.
Youth movement members serve as counselors for children and as mentors
for
younger counselors. In recent years, the number of participants in youth
movements has declined, and the reduction in financial
support has become a
cause for concern (see Chapter IX).
- There
is clearly a need for greater efforts to reverse the trend toward less
participation in meaningful afterschool programs that
can promote positive youth
values and active citizenship.
3. Youth involvement in school and communities
- Another
aspect of respect for the opinions of children and youth is the opportunity for
them to organize and express their views as
a group. Student and youth
councils, operated by the Youth and Society Administration of the Ministry of
Education, are an example
of this. A student and youth council is a channel for
dialogue and cooperation between teachers and students, and between the school
and the community; it also represents students before school and education
authorities. The councils are elected democratically
with suitable
representation from each age group.
- The
councils operate in schools, in local authorities, and at the regional and
national levels. Youth on the regional and national
councils represent their
peers before the Ministry of Education and other government and public
officials. The councils operate
according to bylaws written by council members,
their advisors and other educators. Regional councils sponsor the committees
that
write these bylaws, monitor their implementation, distribute information
about the council and its activities, initiate social activities
for students,
and field requests and complaints from students who believe they have been
treated unfairly in or outside of the school
system.
- The
current trend is to strengthen student councils, increase their involvement in
school life, and reinforce their role in determining
the atmosphere and
direction of a school. Student councils do not exist in every school, and
municipal councils operate in less
than half of all municipalities. Regional
councils operate in every region of the Ministry of Education. Two years
ago, regional
student councils were particularly active promoting
students’ rights, in the face of national sanctions applied by teachers
in
the schools as part of a labor dispute. They have also been increasingly
involved in discussions concerning the structure of
matriculation examinations
(for more information on student and youth councils, see Chapter IX). The
Pupils’ Rights Law 2000
stipulates that a school must encourage the
establishment of a student council, and refrain from any action that would
inhibit its
establishment.
- A
recent law mandates that children be represented on committees on the status of
children, which operate within local authorities.
In addition, youth
representatives are allowed to participate in Knesset committee debates (see
Chapter III).
Respect for the views of the child:
achievements
− A notable increase in service providers’
awareness of the need to hear and weigh the views of children in matters
affecting
them:
− Custody
− Matters under the Youth (Trial, Punishment and Modes of Treatment)
Law
− Determining interventions for minors in facilities of the Youth
Protection Authority
− Increased willingness to appoint a representative for
minors
− A trend to develop programs that encourage youth to get involved in
their school and community
− Participation in student and youth councils and similar
forums
Respect for the views of the child: challenges
− Children’s views are only just beginning
to be heard and considered
− Professionals are not sufficiently trained in involving and listening to
children
− No consistent policy for hearing the views of children in various
frameworks
E. Summary
- This
chapter has surveyed the extent to which the four general principles of the
United Nations Convention on the Rights of the Child
are implemented in
Israel. There are many indications that the Convention has had a significant
effect on policy, legislature and
social services. Moreover, a public committee
has been established to review all legislation and policies concerning children
and
youth, and to promote their compliance with the demands of the Convention.
Despite the efforts being made to implement the spirit
and stipulations of the
Convention, this report identifies many areas that deserve special attention.
These include the following:
- There
is a need to invest more in and devote greater attention to promoting health,
preventing risk behaviors (particularly among
youth), and promoting
safety.
- Poverty
rates are very high, and this has significant consequences for children in many
areas.
- The
education system has been successful in reducing dropout rates and raising
achievement levels. However, dropout rates are still
high, and there are
significant rates of “hidden dropouts” among Arabs and immigrants.
The system needs to find ways
to address the needs of these children and youth
more comprehensively and systematically. In addition, 60% of Israel’s
youth
do not successfully pass matriculation examinations.
- Examination
of the services for disabled children reveals several shortcomings: large gaps
between needs and adequate services, lack
of coordination and information, and
limited opportunities for mainstreaming.
- Israeli
law prohibits discrimination of any type. However, the allocation of resources
to different population groups is not always
consistent with this principle.
Greater efforts are required in a broad range of areas to narrow the gaps
between Jewish and Arab
children. Efforts are being made to promote equality
between new immigrants and veteran Israelis, and to protect the rights of the
children of foreign workers.
- A
variety of means guarantee “the best interests of the child”. In
recent years, the public has given greater attention
to this
issue.
- In
addition, there is a trend to adopt programs and approaches that focus on
maintaining children in their families (and hence on
assisting the families),
and on involving parents in decisions concerning the fate of their
children. However, there are many gaps
in the services that aim to protect
children and support their families: Only a small proportion of children,
including children
at severe risk, receive services; most services do not
involve parents, nor do they attend to their needs. Extensively involving
both parents and children in desicionmaking and planning intervention requires
that professionals receive more training.
- Many
changes have been made in legislation and policies that protect children and
youth suspected of committing a crime, as well as
children who are victims
of crime and exploitation. However, most children who have committed an
offense do not receive comprehensive
rehabilitative interaction, and many of
them do not receive rehabilitation at all. In addition, it is still
unclear to what extent
children’s rights are adequately protected within
the juvenile justice system.
- There
is no consistent policy requiring that the opinions of children be heard and
considered in decisions that concern them. The
notion that children have the
right to be heard in decisions that affect them is increasingly reflected in
policy and law. However,
it is necessary to ensure consistent and uniform
implementation of such policy by creating structured mechanisms, changing
attitudes
and training professionals.
Summary of key issues
− Attention to preventive health services,
prevention of accidents and risk behaviors
− Reduction of poverty and coping with its effects
− Addressing the needs of youth who do not adjust to the education system
(dropouts as well as hidden dropouts)
− Continued development of services for children with disabilities, with
emphasis on mainstreaming
− Reducing the existing gaps between Jews and Arabs
− Extending coverage and improving services that preserve the best
interests of the child, with emphasis on services for
families
− Ensuring adequate rehabilitation while protecting the rights of minors
who have committed an offense
− Creating structured mechanisms, changing attitudes, and training
professionals to hear children’s views and involve
them in decisions that
affect their lives
IV. CIVIL RIGHTS AND FREEDOMS
- Certain
civil and political rights those also likely to be relevant to children are
prescribed in general international treaties
ratified by Israel, or form a part
of international customary law, and as such are universally accepted. (See the
Universal Declaration
on Human Rights, 1948; the International Convention on
Civil and Political Rights, 1966; and the United Nations’ Convention
against Torture, 1984.) The Supreme Court and other courts have used these
treaties to support their judgments; however, reference
to them in the context
of children’s rights has not been widespread.
A. Articles 7 and 8 of the Convention
1. Registration of children at birth and establishment of
identity
- Under
section 6 of the Population Registry Law 1965, there is a duty to notify a
registration officer of the Ministry of the Interior
of a birth which occurred
in Israel. The notification shall be made within ten days of the birth by the
institution at which the
birth occurred, or by the parents of the child. The
notification is made according to the form determined in the Population Registry
(Forms for Notification of Births and Deaths) Regulations 1972. The form
requires, inter alia, certain particulars concerning medical
data about the
newborn, the parents’ occupations, the parents’ number of years of
education, and whether the mother’s
marriage is her first marriage. It is
possible to contend that certain of these requirements constitute an
unjustifiable invasion
of privacy of parents and newborns, and as such are not
binding. After registration, newborns are provided with an identity number.
All registrations are kept in the “Register of Births”, administered
by the Ministry of the Interior.
- Under
section 9 of the Population Registry Law, when an infant is found abandoned, any
person first obtaining possession of the infant
will within ten days make
notification to a registration officer of such particulars of registration of
the infant as are known to
him or her, and any such other information as he or
she may have concerning the birth of the infant.
- Under
section 30 of the Population Registry Law, a person born in Israel and
registered in the Population Registry may receive a birth
certificate, as may
other persons having a prima facie interest in the certificate.
- Under
section 11 of the Population Registry Law, residents of Israel who give birth to
a child abroad are under a duty to notify the
registration officer within thirty
days of the birth and of the particulars of registration of the
infant.
- Section
13 of the Population Registry Law requires that residents of Israel who adopt a
child abroad notify the registration officer
within thirty days of the
particulars of registration of the child. Under section 32 of the Population
Registry Law, persons registering
a marriage are permitted to ascertain whether
the persons wishing to marry are adopted. This provision is necessary to
prevent forbidden
marriages, such as marriages between
relatives.
- Special
arrangements found in the Surrogates (Ratification of Agreement and Status of
the Newborn) Law 1996 address the registration
of children born as a result of a
surrogacy agreement, and guarantee the legal status of such
children.
- Children
of foreign workers or tourists born in the State of Israel are granted a
“birth notice” and not a “birth
certificate”. This
notice includes particulars of the parents and their passport number. The
status of the children is determined
according to their parents’
status.
- Under
section 19e of the Population Registry Law, when the registration officer is
convinced that a certain particular of registration
is missing or that a
particular of registration about the child provided by the parents is in
contradiction with another registration
entry found in the Ministry of the
Interior, the officer may, after providing the parties with a suitable
opportunity to be heard,
complete or correct the registration. However,
correction or completion of a registration entry relating to nationality,
religion
or personal status will not be made without the consent of the person
involved in the matter, or by a declaratory judgment of the
Family Court.
- Representatives
of the Association for Civil Rights in Israel recently presented data to the
Knesset Committee for the Advancement
of the Status of the Child, according to
which hundreds of children, mostly Bedouin, who are not born within the confines
of a medical
institution, have not been registered in the Register of Residents.
Similarly, a child born in East Jerusalem, one of whose parents
is not an
Israeli national, encounters difficulty obtaining an identity card, which
prevents his obtaining medical insurance and
realizing his right to an
education. At the conclusion of the debate, the Committee advised carrying out
a survey on the extent
of this phenomenon, which would enable children to be
located and cared for.
2. The right to a name
- The
right of a child to a name is regulated in the Names Law 1956, which ensures
that a child will not be left without a name and
surname.
- Section
4 of the Names Law provides that a first name agreed upon by the parents will be
given to a child shortly after birth. Parents
are free to choose whatever name
they wish and are not limited by a list of names or any other restriction.
Where the parents are
unable to reach agreement on a name, each parent will give
the child a first name. A father who is not married to the mother of
his child
may not give a first name to his newborn child. This right is reserved solely
for the mother.
- Parents
may change their child’s first name without the consent of the child or
the approval of the court. This arrangement,
which is likely to expose children
to arbitrary name changes against their will, which are not in their best
interest, is problematic.
On the other hand, a guardian who is not a natural
parent needs the approval of the court to change a child’s first name.
Children may not change their first name until they reach the age of 18, unless
they obtain the consent of the court.
- The
Names Law provides other arrangements with regard to surnames. According to
section 5, children born to parents who are married
to each other receive their
parents’ surname upon birth. If the surnames of the parents differ, the
child will receive the
father’s surname, unless the parents have agreed
between themselves that the name to be given will be the mother’s name
or
both the father’s and the mother’s surnames. If parents change
their surname, they need the approval of the court
for the respective change of
surname of their minor child. A guardian who is not a natural parent also needs
court approval for
any change of surname of a child under his protection.
Children may not change their surname before reaching the age of 18, unless
they obtain the consent of the court.
- Even
if only one parent is requesting a change of name of a minor for example, when
the parents are divorced or separated the court’s
approval is necessary.
In a case involving an application from a mother who changed her surname after
divorcing the minor’s
father, in which she requested changing the surname
of the minor accordingly or adding her new surname to the minor’s current
surname, the Family Court in Jerusalem held that the child’s wishes in
this matter were of cardinal importance; it criticized
the existing law, which
fails to make it mandatory to hear the child’s view in such a case. After
having heard the child,
the court decided ex gratia to dismiss the application,
as it discovered that the child was indifferent to the name change, and that
such a change would harm the child’s wellbeing and his relationship with
his father. It should be noted that the court relied
on the spirit and the
letter of the Convention (Family Court Case (Jerusalem) 19530/97 Anonymous
Plaintiff v. Anonymous Defendant (12.4.98 not yet
published)).
- Children
of parents who are unmarried at the time of birth will receive the
mother’s surname. However, when both parents are
in agreement, the
children will receive the father’s surname or the surnames of both
parents.
- According
to section 5 of the Adoption of Children Law 1981, an adopted minor receives his
or her adoptive parents’ surname,
but will not receive a new first name
unless the court determines otherwise in the adoption order. A minor adopted by
the spouse
of his or her birth parent will also carry the name of his other
birth parent, unless the adoptive parent requests otherwise, or
at the order of
the court.
- According
to sections 8 and 9 of the Names Law, a person who has no surname or no first
name, or whose names are not known, and who
is a minor, will have names chosen
for him or her by his or her parents or guardians. Children who have not had
their names chosen
for them, as stated, may have their name fixed for them by
the Minister of the Interior. The Minister is required to notify the
parents
and guardians of the name, who may choose another name for the child. These
provisions are most probably designed to ensure
the wellbeing of children, since
not having a name is likely to harm this wellbeing.
3. The right to acquire nationality and protection of
nationality
(a) Nationality by birth
- Under
section 4 of the Nationality Law 1952, children born anywhere in the world to a
father who is an Israeli national or a mother
who is an Israeli national are
entitled to Israeli nationality.
(b) Nationality by birth and domicile in Israel
- Under
section 4a of the Nationality Law, persons born after the establishment of the
State of Israel in a place which was part of
the State of Israel on the date of
their birth, and who have never possessed any nationality, will become Israeli
nationals if they
request this between their 18th and their 21st birthdays,
and if they were residents of Israel for five consecutive years immediately
preceding the date of their application for nationality. The Minister of the
Interior is authorized not to approve such an application,
if the applicant has
been convicted of an offense of State security or has served at least five years
in prison for any other offense.
In such a case, the applicant is likely to
remain without any nationality.
(c) Nationality by naturalization
- Under
the Nationality Law, if parents acquire nationality through naturalization,
Israeli nationality is also granted to their minor
children who are residents of
Israel at that time. However, if only one parent becomes naturalized, and the
other parent declares
that he or she does not wish the children to become
Israeli nationals the children will not be granted Israeli
nationality.
(d) Nationality at the discretion of the Minister of the
Interior
- Under
the Nationality Law, the Minister of the Interior may grant Israeli nationality
to minors who are residents of Israel following
the application of both parents,
or following the application of either the mother or the father, if one of them
has sole custody
of the child.
(e) Nationality by return
- Immigrants
(“olim”) to Israel under the Law of Return 1950 are entitled
to nationality. Children of parents who are entitled to nationality
under the
Law of Return are also granted nationality. According to a directive of the
Ministry of the Interior, if one parent does
not agree that his immigrant
children be granted Israeli nationality, the children will be granted permanent
resident status (under
the Entry into Israel Law 1952). This status entitles
the children to all of the benefits given to immigrant children who acquire
Israeli nationality under the Law of Return.
(f) Nationality by adoption
- Under
section 4b of the Nationality Law, adopted minors are Israeli nationals by
virtue of their adoption from the date of their adoption,
if they are adopted in
Israel and if their adoptive father or mother are Israeli nationals, or if they
are adopted abroad by Israeli
nationals.
4. Protection of children’s nationality
- Minors
holding Israeli nationality may not renounce this nationality. Adults who are
not residents of Israel and who have renounced
their Israeli nationality may
also renounce the nationality of their children who are still under the age of
16, with the approval
of the Minister of the Interior. The Minister may decide
that the Israeli nationality of the children will remain valid, despite
revocation of the parents’ nationality, if he believes there are special
grounds justifying such a decision. Children whose
nationality has been revoked
by their parents may again invoke Israeli nationality by applying to the
Minister of the Interior between
their 18th and their 22nd birthdays. In the
case of children over the age of 16, their written consent to revoke their
nationality
is necessary, and their parents’ application to revoke their
nationality is insufficient. These arrangements are in accord
with the
provisions of article 8 of the Convention, whereby States should provide
children with adequate means to protect the component
parts of their identity
and to reestablish this identity in appropriate cases. While these arrangements
do not completely prevent
children from becoming stateless, it stands to reason
that the Minister of the Interior should bear this possibility in mind when
exercising his discretion under the law.
5. The right to know parents’ identity
- The
right of children to know the identity of their parents is recognized in Israeli
case law as a basic right deriving from the rights
of children under the
provisions of personal law and their rights to property (see Civil Appeal
5942/92 Anonymous Plaintiff v. Anonymous Defendant, P.D. 48(3) 857);
from their right to dignity (prescribed in the Basic Law: Human Dignity and
Liberty, which has the status of constitutional
legislation); and from the UN
Convention on the Rights of the Child. The Supreme Court wrote the following in
this regard:
“The dignity of man trumpets free will and choice. ... a man who
wishes to know who his father is, who his mother is, where
he comes from who
shouts, ‘who am I?’ his dignity compels us, all of us, to extend a
helping hand ... Indeed, the dignity
of any man, whoever he may be, entitles him
to know who gave birth to him, who fathered him. We must also remember the
International
Convention of 1989, the Convention on the Rights of the Child, to
which Israel became a party in 1991. According to article 7 of
the Convention
“[a child] will have the right from birth ... as far possible ... to know
... his or her parents” (Civil
Appeal 3077/90 Anonymous Plaintiff
v. Anonymous Defendant, P.D. 49(2) 578, p. 593).
- However,
Israeli courts have been forced to grapple with the difficulties arising from
the application of religious law in several
areas of family and personal law,
which at times prevents an individual from realizing his right to know his
parents’ identity
(as in the case of Moslem shari’a), or
infringes on the rights of children whose father is not the husband of their
mother (as in the case of Jewish halacha). The Supreme Court has struck
a balance between the right to know the identity of parents and considerations
that conflict with
this right, based consistently on the principle of the best
interests of the child.
- Thus,
for example, if there is doubt over the identity of a father, the court usually
refers the defendant in the paternity suit for
a DNA screening, which can
confirm or refute paternity with a high degree of certainty. Although the court
is not authorized to
compel a defendant to be tested, his refusal to do so is
persuasive evidence that he is indeed the father (see Civil Appeal Sharon v.
Levi, P.D. 35(1) 579). In a landmark case, the court came to the aid
of a Moslem minor girl, whom shari’a denied the right to paternity
proceedings, as her mother was not married to the person alleged to be her
father. The Supreme Court
ruled that in addition to the paternity, that is a
matter of personal status, and that is governed by religious law, there is
another
paternity, which may be termed “civil paternity”, and which
the court will examine by disregarding religious law. In
this case, the court
was assisted by article 7 of the Convention, which addresses the right of a
child to know his parents (Civil
Appeal 3077/90 Anonymous Plaintiff v.
Anonymous Defendant, P.D. 49(2) 578).
- However,
there are cases in which the court prohibits testing that would reveal the truth
regarding the identity of a child’s
father. These are cases in which a
husband alleges that he is not the father of the child to whom his wife has
given birth. According
to Jewish halacha, the consequences for the child
of verifying such an allegation are liable to be severe, as the child could be
declared a “bastard”,
and as such would be prohibited from ever
marrying a Jew. In cases in which disclosing the true identity of a
child’s father
is liable to cause the child harm, the Supreme Court has
held that a paternity test ought not to be ordered (see Civil Appeal 1354/92
Attorney General v. Anonymous Defendant, P.D. 48(1) 748). For
example, in one case, the Jerusalem Family Court refused to order a paternity
test on the supposition that
even casting doubt on the father’s paternity
would severely harm the child.
- Another
case in which a different interest prevails over the right of a child to know
the identity of his biological parents is that
of fertilization by means of
donated sperm or ova. In Israel, persons donating sperm or ova are guaranteed
anonymity, and children
born from such donations are not entitled to know the
identity of their biological fathers or mothers. The anonymity guaranteed
to
donors promotes donation, and serves the parents who actually raise the
offspring of the donation. However, the best interest
of these children, who
are prohibited from ever knowing the truth of their origin including
information that may have medical repercussions
(for example, concerning genetic
makeup) is not served.
- Adopted
children may receive information about the identity of their parents after they
have reached the age of 18. Adopted children
must apply to a child protection
officer to inspect the register in which information about their biological
parents is recorded.
If their application is rejected, they may petition the
court, which will decide the matter after having obtained a report from
the
welfare officer.
- Similarly,
children born as a consequence of a surrogacy agreement may also apply to review
the register in which the details of their
birth are recorded.
6. The right to parental care
- Under
section 14 of the Guardianship and Legal Capacity Law 1962, parents are the
natural guardians of their children. This means
that children are entitled to
be cared for by their parents, and parents are entitled to care for their
children. Denial or restriction
of guardianship is made only in those cases in
which parents are unable to fulfill their obligations, and with the approval of
the
court.
- Children
whose right to be cared for by parents is not exercised due to a refusal on the
part of the parents to care for them are
likely to be awarded compensation for
damage incurred due to neglect. Such was the ruling of the Supreme Court in a
case, which
was evidently groundbreaking on a world scale. In the case in
question, a mother committed suicide when her children were very young,
and
their father cut off all ties with them because of an agreement he had made with
his new wife. The children were raised in institutions
and foster homes, and
were emotionally handicapped by their father’s cruelty and abandonment.
The court ruled that by neglecting
his children, the father was in breach, inter
alia, of his duty to his children as stipulated by the Guardianship and Legal
Capacity
Law 1962, and hence had committed the civil wrong of violating a
statutory obligation.
B. Article 13 of the Convention - freedom of
expression
- Although
freedom of expression is not anchored in a specific statute, it is recognized by
Israeli law as a fundamental right. Just
as the freedom of expression of adults
is recognized, so too is the freedom of expression of children. Nevertheless,
freedom of
expression is not an absolute right. Limitations on the freedom of
expression of adults also apply to children. These limitations
are determined,
inter alia, in the Defamation Law 1965 and in those provisions of the Penal Law
1977 that prohibit incitement to
racism, soliciting an individual to commit an
offense, and the like (see also Chapter II).
Freedom of expression in the education system
- It
is the policy of the Ministry of Education, as expressed in the circulars of the
directorgeneral of the ministry, to encourage
political education, social
awareness, involvement in current events, and understanding of and involvement
in State affairs. Schools
allow the expression of the range of opinions and
perspectives abroad in society, as long as these do not contravene the law. The
point of this is not to encourage affiliation with any one political party, but
to expose pupils to a diversity of ideas.
- Schools
allow those supporting and opposing a political position to express their
opinion, regardless of whether the position is supported
by the government or
accepted by the majority of the public. Students are not required to renounce
their beliefs or views, even
if these are repugnant. As part of this policy,
the ministry encourages meetings between pupils and persons engaged in public
and
social affairs. Such meetings, which schools take part in organizing, are
held both in and outside the bounds of the school.
- The
Ministry of Education encourages students to become involved in publishing
student newspapers, although supervises their content.
For example, the
Ministry of Education initiated an electronic magazine,
“Itonnoar”, which is written and produced by youth and
broadcast on Teletext. The Ministry of Education has published bylaws,
including
a code of professional ethics, for the members of editorial boards of
student newspapers.
C. Article 14 of the Convention - Freedom of religion and
conscience
- Freedom
of religion and conscience are anchored in the law of the State of Israel.
According to section 83 of the King’s OrderinCouncil
for Palestine 1923, a
statute enacted during the British Mandate that is still valid:
“Every person in Israel shall enjoy complete freedom of conscience and
may perform their form of worship without hindrance,
provided that public order
and morals are preserved. Every religious group will enjoy independence in
internal affairs, subject
to the ordinances and orders issued by the
government.”
- The
Supreme Court has added that “it is a matter of principle in Israel
originating in the rule of law (in its material sense)
and in the case law
issued by the courts that freedom of religion and freedom from religion be
preserved for nationals and residents
of Israel” ((Petition to the) High
Court of Justice 3872/93 Miteral Ltd. v. Prime Minister and Minister of
Religion, P.D. 47(5) 485).
- Freedom
of religion involves providing parents with the opportunity to educate their
children in accordance with the religion to which
they adhere, or to refrain
from providing a religious education. In order to exercise this freedom, the
law allows parents to select
from among State schools, State religious schools,
and private schools. (See section 10 of the Compulsory Education Law
1949.)
- If
parents are unable to reach agreement on the religious education of their
children, the court will decide the issue by balancing
the various pertinent
interests. The Supreme Court’s approach is that the desire to educate
children according to their religious
identity is only one of many things that
must be considered when deciding matters of custody. In one case the Supreme
Court dismissed
an application by a mother to transfer her children from the
custody of her former husband into her custody, so that she could bring
them to
Sweden where they were born, and where they would receive an education
commensurate with their Christian religion. The court
ruled that the
theoretical possibility of a crisis concerning their religious identity was
insufficient grounds for removing them
from the custody of their father, who
cared for them devotedly (Civil Appeal 90/86 Martinson v. Buzo,
P.D. 40(3) 503). In another case in which a mother wished to expose her
children to the doctrine of a sect that she had joined
after her marriage, while
the father wished to educate them according to the tenets of the Jewish
religion, thenChief Justice Meir
Shamgar determined that this was a conflict
between mother’s right to freedom of religion, and the children’s
right to
freedom of religion, and that the perception of children’s rights
as being separate led to the conclusion that the children’s
right to be
educated as
Jews should prevail over the mother’s right to educate them according
to another religion. In the words of Chief Justice Shamgar,
“The
mother’s right to freedom of religion is firmly established, and includes
her right to give her children a religious
education. However, her right bows
to that of her children”. The other justices who heard this case had
reservations about
the primacy Chief Justice Shamgar gave to the rights of the
child as a means of resolving disputes concerning children. Nevertheless,
they
reached the same conclusion regarding the case albeit by relying on the more
traditional doctrine of the best interests of
the child (Civil Appeal 2266/93
Anonymous Plaintiff v. Anonymous Defendant, P.D. 49(1) 231). There
is no law or case law determining the rights of a minor who whishes to become
more religiously observant,
or to leave a religiously observant lifestyle,
without parental consent.
1. Freedom to convert
- The
religious conversion of children is regulated in section 13 of the Guardianship
and Legal Capacity Law 1962. According to section
13(a) of that law, children
who have not yet reached the age of ten may be converted if both of their
parents agree to conversion,
or if the court approves conversion upon the
application of one of the parents. According to section 13(b), the
religious conversion
of children who have reached ten years of age requires both
an application by their parents and the consent of the children. The
conversion
of children contrary to the provisions of this section is legally invalid. The
Supreme Court explained the reasoning
behind these provisions in Anonymous
Plaintiff (Minor) v. Anonymous Defendant, P.D. 49(1) 221, p. 258,
as follows:
“The purpose of these provisions is to protect the interests of the
child. Freedom of religion grants parents complete freedom
to choose their
child’s first religion. However, after having done so, the complete
choice is no longer in their hands, and
any change of religion also incurs some
infringement of the legitimate interests of the child. It is possible that the
child may
still be unaware of this interest and may not yet be able to form,
exercise or protect his interest; nevertheless, it still exists.
Therefore the
State is required to intervene, in the form of the protection of the
court.’
2. Freedom of religion in the education system
- The
primary organizing principle of the Israeli education system is a religious one.
The system comprises a significant number of
fairly autonomous approaches, most
of which are supported by State funds. While based on a recognition of
religious pluralism, and
not lacking in advantages, this arrangement may also
foster difficulties such as unequal or insufficient funding for politically
weak groups, religious separatism, and the perpetuation of gaps among population
groups which are liable to hinder the provision
of equal educational
opportunities.
- A
problem deriving from a difference between the religious beliefs of children and
the religious beliefs of their parents may arise
when the children find
themselves, by virtue of their parents’ choice, at an educational
institution affiliated with a faith
or belief system to which they do not
adhere. In one case, the Supreme Court debated the refusal of a private
Christian school to
allow a female Moslem student to attend school wearing a
veil. The court decided not to
intervene in the school’s policy, as the school was a private one
affiliated with a religious group, whose considerations were
based on its
particular nature and essence. Chief Justice Aharon Barak commented that
were the school affiliated with the State
system, it would have been appropriate
to recognize the student’s right to wear the veil as her religion commands
her, within
the ambit of the freedom granted every student to express his
religious beliefs through his mode of dress, since freedom of religion
takes
precedence over rules of uniformity. Another justice who heard the case,
Eliezer Goldberg, did not rule on the implications
of freedom of religion for
State schools ((Petition to the) High Court of Justice 4298/93 Jabarin v.
Minister of Education and Culture, P.D. 48(5) 199).
- Religious
Jewish males customarily cover their heads. According to a directive of the
Ministry of Education, a Jewish student may
not be prevented from covering his
head, even if he attends a nonreligious State school. Conversely, the bylaws of
some nonreligious
State schools require students to cover their heads during
certain classes (such as bible class). It could be claimed that this
obliges
students to perform a religious practice, and that as such it violates their
right to freedom from religion.
D. Article 15 of the Convention - Freedom of association and
peaceful assembly
- Freedom
of assembly is recognized in Israel as a basic human right. In principle, this
freedom also applies to children. Similarly,
restrictions on the assembly of
adults also apply to children. For example, under section 147 of the Penal Law
1977, a person who
has reached the age of 16 and who is a member of a proscribed
organization may be sentenced to one year in prison.
- However,
in reality, the law makes it difficult for children to exercise this right. The
Amutot (Nonprofit Societies) Law 1980 restricts
the right of children to belong
to an association. (Under section 15 of this law, any adult is competent to be
a member of an association.)
Similarly, the Companies’ Law 1999 grants
every individual the right to establish a company.
- In
reality, aspects of freedom of assembly, such as establishing a company, are
liable to be proscribed for children by the Guardianship
and Legal Capacity Law
1962, which limits their capacity to perform certain legal acts even if the
specific law governing an aspect
of freedom of assembly itself imposes no
restrictions. Under the Guardianship and Legal Capacity Law 1962, a minor
performing a
legal act generally requires the consent of his representative
(parent or guardian). A minor’s representative has the authority
to
consent to any legal act performed by the minor, or to revoke the act within one
month of the date on which the representative
was notified of it. This does not
hold for “legal actions performed by a minor, which minors his age would
perform”,
even when the representative does not agree to them, unless they
cause real harm to children. The answer to the question of what
acts
“would be performed by a minor” of a certain age varies with
cultural and social developments. It is doubtful whether
assembly for economic
gain is at present an activity “that minors would perform”. Thus,
those few children who would
wish to engage in such activity, including those
who are sufficiently mature to do so, are liable to be put at a disadvantage by
the paternalistic arrangement in the law.
1. Political assembly
- Under
section 2 of the Political Parties Law 1992, only adult Israeli nationals may
establish a political party. However, under section
20 of the law, an Israeli
national who has reached the age of 17 and is a resident of Israel may join a
political party.
2. Assembly in student and youth councils
- The
Ministry of Education encourages the establishment of student councils, which
are elected bodies of students that represent the
entire student body before the
school administration, the local school board and the Ministry of Education.
Student council members
are elected democratically, with adequate representation
for every age group (see the directorgeneral’s circular nt/1(a) of
September 1, 1998.) A student council member also serves on the committee to
promote the status of children established in each local
authority under section
149G of the Municipalities Ordinance, as amended in 2000. The Pupils’
Rights Law 2000 stipulates that
a school must encourage the establishment of a
student council, and refrain from any action that would inhibit its
establishment.
- Similarly,
youth movements that represent various political movements and sectors are
active in Israel (see Chapter IX).
3. Freedom of protest and demonstration
- The
freedom of protest and demonstration enjoyed by adults also applies to children,
in principle. The Ministry of Education prohibits
students from taking part in
political demonstrations during school hours, although it recognizes that
students and teachers have
a right to participate in demonstrations outside
school hours, on their own responsibility.
- The
Ministry also stipulates that parents of children who are absent from school due
to participation in any gathering or demonstration
will notify the school of the
absence in writing. The school will handle this absence in conformity with the
regulations applying
to any absence from school.
E. Article 16 of the Convention - The right to dignity,
privacy and reputation
- According
to sections 2 and 4 of the Basic Law: Human Dignity and Liberty, all persons,
including all children, are entitled not
to suffer any violation of their life,
body and dignity; moreover, they are entitled to protection of their life, body
and dignity.
Section 7 of the Basic Law: Human Dignity and Liberty includes a
number of provisions on the right to privacy, derived from the
right to dignity.
The right to privacy is set forth in the Protection of Privacy Law 1981.
Protection of the right to a reputation,
which also derives from the right to
dignity, is set forth in the Defamation Law 1965.
- Ministry
of Education directives include numerous provisions to protect students’
dignity, including their privacy. For example,
the directives prohibit anyone
in the school from conducting a bodily search of a student to discover drug use,
even if students
and parents have
given their consent to such searches. Another directive of the Ministry of
Education prohibits an educational institution from punishing
a student for any
act or omission of his parents. This is directed at parents who fail to make
all of the payments requested by
the institution. A student may not be removed
from a classroom or suspended from school as a result of nonpayment, nor can his
grades
or certificates be withheld for nonpayment. In fact, another directive
stipulates that matters of payment will be settled directly
with parents,
without involving students. A student’s dignity will not be violated due
to a dispute with his parents over
payment.
1. The right to privacy in the narrow sense
- As
noted, the right to privacy and confidentiality are anchored in section 7 of the
Basic Law: Human Dignity and Liberty and in the
Protection of Privacy Law 1981.
In principle, this right is also granted to children. Invasion of privacy is a
civil wrong for which
the law provides relief.
- In
addition, the law includes arrangements concerning children specifically, which
are reflected in a diversity of prohibitions against
publicizing information or
details that will reveal a child’s identity. A number of statutes
prohibit the publication of information
about minors.
- Juvenile
court proceedings are conducted in camera. Publication of a hearing
conducted in camera, including a photograph of the courtroom,
must be
authorized by the court. Sections 70 and 70(c) of the Courts Law
[Consolidated Version]1984 prohibit publication of any
detail whatsoever that is
liable to lead to the identification of minor defendants in a criminal trial.
This provision applies to
courts of all instances in which minors may be tried
not only juvenile court and its application is not restricted to cases which
are heard in camera.
- The
Youth (Care and Supervision) Law 1960 protects minors from the publication of
details that are likely to impute an offense or
moral corruption to them or
their relatives, or to impute a minor’s having been the victim of an
offense. Furthermore, section
13 of the Crime Register and Rehabilitation of
Offenders Law 1981 restricts the transmission of information about offenses
committed
by minors who have not yet reached the age of 14, and misdemeanors
(offenses punishable by a maximum of three years’ imprisonment)
committed
by minors who have not yet reached the age of 16. The section also restricts
the transmission of information about a probation
order, an order on
recognizance to abstain from an offense, and an order to perform public works
without a conviction. The law allows
such information to be delivered to
certain authorities only, which require it to fulfill their duties inter alia,
the courts, the
attorney general, military prosecutors, and the Review Committee
into the Criminal Record of Soldiers. Information on a criminal
investigation
against a minor that does not lead to an indictment will not remain with the
police in a computerized form and will
not be transferred to any external
authority.
- Prohibited
publications generally constitute a criminal offense, as determined in the
statute in which the prohibition is included.
Section 14 of the Crime Register
and Rehabilitation of Offenders Law 1981, which prescribes particularly short
limitation periods
for convictions of minors, prevents information about the
conviction from being transmitted at the termination of the limitation
period.
- Family
Court has addressed the conflict between a child’s right to privacy and
the right of the public to know and freedom of
the press. In one case,
potential parents and a surrogate mother requested permission to reveal their
identity and that of their
children and to recount their experiences in a
television film. Under section 19 of the Surrogates (Ratification of Agreement
and
Status of the Newborn) Law 1996, the name and identity of a surrogate
mother, potential parents, and children may not be published
without the consent
of the court. In this case, the court refused to permit the publication, ruling
that the right of the children
to privacy prevailed over the freedom of
expression of the parents and the makers of the film. In so ruling, the court
relied on
article 16 of the UN Convention on the Rights of the Child, which
provides that “no child shall be subjected to arbitrary or
unlawful
interference with his or her privacy” (Family Court Case (Tel Aviv)
4570/98 Anonymous Plaintiff v. Attorney General (not yet
published)).
- According
to the Protection of Genetic Information Law 1998, one of whose main objectives
is to protect genetic information and the
right of persons who have undergone
genetic testing to privacy with regard thereto, genetic testing and DNA sampling
on a minor age
16 and over requires the written consent of the minor and his
representative, provided the minor has received and understood a complete
explanation about the test; in the case of a younger minor, the written consent
of his representative is required. The law restricts
genetic sampling on a
minor to cases in which the minor will not suffer any physical or emotional
harm. Genetic testing of a minor
for another person who is not a relative
requires the approval of the court. Results of tests conducted on a minor may
not be revealed
to his representative unless they detect the existence of a
disease or a diseasebearing gene, or unless reasonable medical opinion
determines that intervention or treatment could prevent or delay the outbreak of
disease in the minor or a relative, or could prevent
a decline in the
minor’s condition, or could provide essential assistance to another person
without causing the minor any physical
or emotional harm. It has been further
proposed that in research that includes genetic testing of minors, a minor who
has reached
the age of 16 will be instructed not to reveal details of his
identity. A person age 18 and over may revoke, restrict or alter the
consent he
gave to participating in such research when he was a minor.
2. Privacy in the narrow sense in the education system
- Large
amounts of information are collected on children in the education system. This
information, including personal details, grades,
medical records, and a
psychological profile, is compiled on a student card, which follows the student
throughout his stay in the
education system. According to the directives of the
Ministry of Education, no student card or information therein may be brought
to
the attention of authorities outside the education system, without the consent
of the student’s parent or the student himself
(after he has reached the
age of 18).
- According
to Ministry of Education directives, parents must be notified of any request by
a student, on his own initiative, to meet
with the school psychologist, unless
the student expressly states that he or she is not interested in such
notification. If more
than two meetings take place with the psychologist, the
parents must be notified, even in defiance of the student’s wishes.
(See
DirectorGeneral’s Circular na/1 of September 2, 1990.) Special directives
deal with psychological information about students
and oblige schools to keep
all matters relating to psychological reports confidential. Moreover, a
student’s parents and the
principal must be
informed of any sensitive or serious case that reaches the psychologist or
school counselor, such as a minor’s contravention
of the law, engaging in
sexual relations, or pregnancy. It is desirable, but not mandatory, that the
information be transmitted
with the student’s consent. (See
DirectorGeneral’s Circular sn/9 of May 1, 1990.)
- According
to a general directive of the Ministry of Education, the right to receive
information about a student is reserved for parents
and guardians; anyone else
desiring information about a student must obtain the consent of his parent or
guardian. However, this
general directive is apparently subject to another,
specific directive that determines that information about students may be
transmitted
to the staff of the Ministry of Education, the local authority, or
government agencies who require it in order to do their jobs.
This directive
does not require obtaining the consent of a student or his guardian to transmit
the material.
- The
legality of these directives, which violate the constitutional right to privacy
prescribed in the Basic Law: Human Dignity and
Liberty, and the provisions of
the Protection of Privacy Law 1981, has not yet been reviewed by the courts. It
seems possible that
in certain circumstances these directives do not even
conform with the obligation to preserve confidentiality that is imposed on
psychologists by section 7 of the Psychologists’ Law 1977. In fact,
the directives are liable to deter students from seeking
counseling or
treatment.
- Nonetheless,
Ministry of Education directives are strict about a student’s right to
privacy in other contexts. For example,
the Ministry of Education sponsors a
“hotline” for students who wish to discuss a problem, clarify their
rights, or receive
assistance. Hotline staff are obligated to maintain
confidentiality and privacy; they may transmit information about a caller only
with the caller’s consent. (See DirectorGeneral’s Circular nz/1 of
September, 1996.) According to another directive,
teachers, principals or other
staff conducting research on students must receive the consent of the
students’ parents and the
Ministry of Education. Publication of such
research must not reveal the students’ identity. The recently ratified
Pupils’
Rights Law 2000 stipulates that anyone who has received
information about a student pursuant to the job he is legally charged to
perform
must keep this information secret and may not reveal it except for the express
purpose of performing his job.
- According
to section 368d of the Penal Law 1977, the staff of an educational institution
attended by minors who as a consequence
of their position have reasonable
grounds to believe that an offense has been committed against a minor by a
person responsible for
him are bound to report any such incident as soon as
possible to a child protection officer or the police. Breach of such an
obligation
is a criminal offense (see Chapter X).
- The
employment of a private investigation company within school grounds is
absolutely prohibited, regardless of whether the investigation
concerns theft,
drugs or other unusual phenomena involving students. (See
DirectorGeneral’s Circular ng/10 of June 1, 1993.)
- The
Protection of Privacy Law 1981 determines special instructions regarding the
information in computer data bases. The law provides,
inter alia, that every
person has the right to view information about himself and to amend any
erroneous information; this information
must be kept confidential. Much information about students is indeed found
in data bases. Instructions to protect the privacy of
an individual about whom
information may be found in a computer data base also applies to
students.
3. The right to privacy in the broad sense
- The
right to privacy in the broad sense, derived from the right to dignity, refers
to the right of an individual to be “left
in peace” and to conduct
his intimate affairs and private life without interference. Granting children
privacy in this sense
is likely to conflict with the role of parents as natural
guardians and with their right to nurture and educate their children in
the
manner they see fit, as well as with the educational function of school. Such
conflicts are liable to arise in any matter concerning
children’s lives.
We shall provide examples of their complexity in the contexts of medical
treatment provided to children.
- The
law allows medical treatment, testing and other intervention for minors without
the consent of their parents in only a limited
number of cases, including
AIDS/HIV testing (the Detection of the AIDS Virus in Minors Law 1999);
performing an abortion on a female
minor (section 316 of the Penal Law 1977);
and mental health care or hospitalization (section 4B of the Treatment of
Mentally Ill
Law 1991).
- The
Supreme Court addressed the case of a youth age 17 and seven months who had
become ill with cancer who refused medical treatment
(chemotherapy) and was
admitted to a closed psychiatric ward to forcibly receive treatment. The youth
petitioned the Supreme Court
with a request not to receive treatment against his
will. However, the case was settled without a ruling, which would have set a
precedent ((Petition to the) High Court of Justice 2098/91 Anonymous
Plaintiff v. Child Protection Officer, Jerusalem Social Welfare Department,
P.D. 48(3) 217).
- Many
directives have been issued in the education system that infringe upon a
student’s privacy in the broad sense. For example,
students are forbidden
to smoke at school, yet teachers are permitted to smoke in a designated smoking
corner. Most schools publish
internal bylaws through directorgeneral circulars,
which include restrictions on students’ dress and physical appearance.
A
typical example is that given by the regulations of a secondary school in Haifa:
On Fridays, when students are free to dress as
they choose, they are
“forbidden to come to school in shorts (shorter than Bermuda length), torn
pants, undershirts, bikini
tops, torn shirts, clogs or slippers”. The
constitutionality and legality of some of the provisions in these directives and
bylaws have yet to be reviewed by the courts.
F. Article 17 of the Convention - Access to appropriate
information:
regulating television, radio, and film
- Under
the Broadcast Authority Law 1965, the promotion of the goals of State education
as prescribed in the State Education Law 1953
was included among the functions
of the Broadcast Authority, which is responsible for public broadcasting in
Israel. The rules of
the
Broadcast Authority have the status of administrative guidelines and are
designed to guarantee ethical broadcasting. Under the Second
Television and
Radio Authority Law 1990, the Second Television and Radio Authority, which is
responsible for commercial broadcasting,
is assigned the task of broadcasting
educational programs.
- The
law includes a number of arrangements to protect children exposed to the mass
media.
- Educational
Television was granted a license, without a tender, for television broadcasting
of pedagogiceducational subjects only,
at viewing times that are appropriate for
its target population. Educational Television is allocated broadcasting time on
both Channel
One, operated by the Broadcast Authority, and on Channel Two,
operated by the Second Television and Radio Authority. Under Second
Television
and Radio Authority (Television Program Broadcasting by Licensee) Regulations
1992, companies licensed to broadcast on
Channel Two must give appropriate
expression to the areas of interest of defined population groups, including
children, and to devote
15% of their air time to children and youth at
appropriate viewing hours. Licensees are required to clearly state in all
program
listings if viewing is restricted to adults; such programs may not be
aired before 22:00. Licensees must ensure that programs designed
for children
under the age of seven are dubbed in Hebrew.
- According
to the Cinematography Ordinance 1927, the Film Censorship Board is authorized to
determine the minimum viewing age for films
likely to harm children, such as
those with explicit depictions of violence or sex. At present, the Knesset is
debating several
bills to classify television programs by the age of the target
audience and to censor the content of advertisements broadcast during
child and
family viewing times.
- Existing
legislation aims to protect minors from advertising that is liable to harm their
health or welfare. The Consumer Protection
(Advertising Aimed at Minors)
Regulations 1991 set the following fundamental principles for advertisements
directed at minors: An
advertisement must be adapted for the level of
knowledge, understanding and maturity of its target audience, and must transmit
information
precisely, truthfully and in clear language; it must accord with
those social values generally accepted as being positive, in the
knowledge that
minors are likely to be influenced by it to do things that may adversely affect
their health or welfare; it must not
encourage minors to do dangerous things; it
must refrain from exploiting the imagination and lack of experience typical of
minors;
it must not use violence, nudity or sexual innuendo. In addition,
advertising is prohibited in schools, save with the permission
of the
directorgeneral of the Ministry of Education or a person who has been authorized
by him to give such permission. The law
does not define what constitutes
“advertising to minors” or how to protect minors from exposure to
advertisements not
directed at them; it seems that this law is not widely
enforced. Public television channels control the advertisements broadcast
during times when minors are likely to watch television.
1. Protection against publications about children in the
media
- Few
laws protect children against harmful publicity. The main provision in this
matter is section 24 of the Youth (Care and Supervision)
Law 1960, which
states the following:
“The following are liable to imprisonment for a term of one year:
“(1) A person who publishes the name of a minor or anything else likely
to lead to a minor’s identification or hint at
his identity, in a manner
or under circumstances that may reveal the following:
“(a) that the minor has been brought before a court;
“(b) that a child protection officer acted or is acting in respect of
the minor under this law;
“(c) that the minor attempted to commit suicide or committed
suicide;
“(d) anything that is likely to impute a minor in an offense or moral
corruption;
“(e) that the minor is a relative of a person to whom an offense or
moral corruption is imputed;
“(f) that a sexual offense, violent offense, or abuse has been
committed against the minor, or that the person responsible
for the minor has
committed an offense against him...;
“(g) any matter that might link a minor to an AIDS/HIV test;
“(h) any matter that might link a minor to a psychiatric test,
treatment or hospitalization.
“(2) A person who publishes a nude picture of a minor age nine or over
which may lead to the identification of the minor ...
“(a) under this section, it is immaterial whether the minor or his
representative consented to the publication.”
- Under
section 25 of this law, the prohibition does not apply to a publication
permitted by the court or to publications made by the
police as part of a felony
investigation.
- The
instructions of the law are inadequate regarding the publication of nude
photographs of children, as children of all ages are
liable to suffer from the
publication of a nude photograph of them, if not at the time of publication,
then years afterward. Regarding
the prohibition against
publicizing the name of a child who has been involved in an offense, the need
to protect the minor even when he is the offender
from a stigma that may harm
him in the future should prevail over the public interest in warning against
notorious offenders.
- Section
34 of the Adoption of Children Law 1981 prohibits disclosure or publication of
the name of an adoptive parent or an adopted
child, or of his or her parent, or
of any other matter likely to lead to their identification, without the
court’s consent;
violation of this prohibition is a criminal
offense.
2. The right to information from the education system
- The
Israeli education system has recognized the right of students and parents to
receive current information on students’ functioning,
rights and
obligations at school. The Ministry of Education and other agencies disseminate
information on students’ rights
and obligations at educational
institutions.
G. Article 37 (a) of the Convention
A. Prohibition against torture and cruel treatment
- General
constitutional protection against torture and cruel, inhumane and degrading
treatment and punishment, whether of adults or
children, is grounded in the
Basic Law: Human Dignity and Liberty, section 2 of which states that
“there may be no violation
of the life, body or dignity of any person as
such”, and section 4 of which states that “every person is entitled
to
protection of his life, body and dignity”. On the basis of these
sections, the Supreme Court has prohibited, inter alia, the
use of methods of
interrogation that cause physical discomfort, and so much the more so actual
torture against people suspected of
a breach of security ((Petition to the) High
Court of Justice 5100/94 Public Committee against Torture in Israel v.
Government of Israel (6.9.99 not yet published)). Israel ratified the 1984
International Convention Against Torture and Cruel, Inhumane and Degrading
Treatment in 1991.
- In
addition, Israeli law provides a range of protections for children against
cruelty on the part of State authorities and on the
part of those persons
responsible for them (e.g., parents, teachers, caretakers,
etc.).
- Assault,
abuse and neglect of a minor are defined as separate offenses, with maximum
penalties that are more severe than those for
parallel offenses perpetrated
against adults (see section 7(1) of the Penal Law 1977). Israeli case law,
particularly that of the
Supreme Court, regards cases of abuse and assault of
children with the gravest severity (see for example Criminal Appeal 1121/96
Anonymous Plaintiff v. State of Israel, P.D. 50(3) 353; Criminal
Appeal 1351/92 State of Israel v. Anonymous Defendant, P.D. 46(3)
631). (Regarding the prohibition against the sale of brass knuckles and knives
to minors with the aim of protecting
bodily integrity, see section 185A of the
Penal Law 1977, amended in 2000.)
1. Corporal punishment of children
- Until
recently, section 24(7) of the Civil Wrongs Ordinance [New Version] an section
originally enacted in 1944 provided that in
an action for assault, the
defendant would have a defense if “the defendant was the parent, guardian
or teacher of the plaintiff,
or had a relationship with the plaintiff similar to
that of a parent, guardian or teacher, and tormented the plaintiff to the extent
reasonably necessary to correct his ways”. This provision endured much
criticism. For instance, the Minister of Justice stated
that “it is an
archaic defense which no longer reflects modern attitudes concerning children in
general and the State of Israel’s
obligations under the Convention on the
Rights of the Child, in particular” (Knesset debate dated March 18, 1998).
The Knesset
did in fact recently repeal this provision.
- In
the past, the approach reflected in the Civil Wrongs Ordinance was also
reflected in the case law concerning criminal offenses,
which stated that
parents are entitled to employ corporal punishment to educate their
children.
- This
approach has changed. The Supreme Court has ruled, regarding teachers, that the
old case law “no longer conforms to the
social norms that we find
acceptable” (Criminal Appeal 5224/97 State of Israel v. Sde Or
(20.7.99 not yet published)). In another case, the Supreme Court
held:
“Physical violence against a student is prohibited. Flogging, beating
and ear pulling have no place in school. A classroom
is a place of instruction,
not an arena of violence. A student’s body and soul are not
ownerless. His dignity as a person
is violated if his teachers exercise
physical violence against him ... Ear pulling is not sanctioned as a means of
encouraging a
student to remember. Striking his hand with a ruler is not a
sanctioned means of warning” (Criminal Appeal 4405/94 State of Israel
v. Abd alGani, P.D. 48(5) 191, pp. 192193).
- In
ruling in the Sde Or case, the Supreme Court relying in part on the UN
Convention on the Rights of the Child overturned a lower
court’s
acquittal in a charge of assault against a kindergarten teacher who beat
the toddlers in her care. In section 7 of
its ruling, the court
stated:
“The pedagogic approach that promotes the use of force for educational
purposes is not appropriate ... to the norms of our society,
particularly
against such young children ... As such, the severity of the physical
punishment imposed against the child is totally
irrelevant. As a rule, corporal
punishment is not a legitimate method to be used by preschool or other teachers
or other staff in
the education system. An erroneous approach in this context
endangers the safety of children and is liable to taint the fundamental
values
of our society: human dignity and bodily integrity.”
- It
was further held in the Sde Or ruling that the use of corporal punishment
against preschool children does not meet the requirement
of what is
“reasonably necessary to correct [the child’s] ways”, as
stipulated in section 24(7) of the Civil Wrongs
Ordinance.
- In
another ruling, the Supreme Court determined that the criminal sanction against
corporal punishment also applied to parents (Criminal
Appeal 4596/98
Anonymous Plaintiff v. State of Israel, P.D. 54(1) 145). The ruling
stated, inter alia:
“Not only does painful or degrading punishment as a means of education
fail to truly achieve its objectives and cause a child
physical and emotional
distress, but it also violates the fundamental right of the children of our
society to dignity and to integrity
of body and mind. A court examining the
normative aspect of a parent’s behavior toward his child must weigh the
prevailing
legal approach to the status and rights of the child. Such is the
case in many countries and in Israel following the passage of
the Basic Law:
Human Dignity and Liberty and Israel’s accession to the UN Convention on
the Rights of the Child. At present
it may be stated that in a society such as
ours a child is autonomous, with rights and interests of his own; society is
obligated
to protect him and his rights.”
- The
Ministry of Education imposes an absolute ban on the use of any form of corporal
punishment as a means of discipline. The same
holds for verbal violence that
is, injurious or humiliating remarks. These directives are enforced through the
criminal justice
system and through disciplinary measures. The prohibition
against the use of corporal punishment was recently given legal sanction
by the
Pupils’ Rights Law 2000, which determines that the implementation of
disciplinary measures by a school in a manner that
respects human dignity is the
students’ right. In this context, the law specifically prohibits the use
of corporal or humiliating
punishment.
2. Remedies for parental cruelty
- In
a groundbreaking ruling, the Israeli Supreme Court held that children were
entitled to damages from a parent for emotional anguish
suffered in consequence
of the parent’s extreme neglect and cruelty (Civil Appeal 2034/98 Amin
v. Amin (4.10.99 not yet published)).
3. The obligation to report
- Chapter
10, section 5(1) of the Penal Law 1977 obliges every individual to report to the
authorities a suspicion that a child is suffering
from neglect, abandonment,
assault or physical, mental or sexual abuse by his guardian. This obligation
the breach of which is
a criminal offense is imposed on everyone, regardless of
whether he has any tie to the child in question. Even more severe maximum
penalties are imposed for breach of this obligation on physicians, nurses,
people who work in the education system, social workers,
welfare service
employees, police officers, psychologists, criminologists, paramedical
professionals, and staff of an institute for
children (see Chapter X).
B. Minors in need of protection
- Under
the Youth (Care and Supervision) Law 1960, children whose physical or emotional
wellbeing is impaired or liable to be impaired
due to abuse, humiliation or any
other reason are considered in need of protection that is, as needing
supervision and care. When
the relevant authorities receive information about a
child in need of protection, they are authorized to enter any place in which
the
child may be found and make inquiries about his condition. In an emergency,
child protection officers are authorized to act
as they see fit to assist the
child. In other cases, the child protection officer must apply to juvenile
court before exercising
his authority. The court, if it finds that the minor is
in need of protection, is authorized to give any instruction it deems necessary
to care for and safeguard him. When appropriate, the court may order the
removal of the child from the custody of his guardian to
another place. The
court is also authorized to issue a restraining order.
C. Children suspected of a criminal offense
- The
handling of a child suspected of having been involved in criminal activity is
different from that of an adult, and is regulated
by the Youth (Trial,
Punishment and Modes of Treatment) Law 1971 and by the internal directives of
the relevant authorities (see
Chapter X).
D. Capital punishment
- Israeli
law allows the courts to impose the death penalty in rare cases only. Since the
establishment of the State, the death penalty
has only been implemented once (in
the case of Adolph Eichmann, who was responsible for the annihilation of Jews in
Nazi Germany;
see section 12 of Chapter IV).
- In
any case, section 25(b) of the Youth (Trial, Punishment and Modes of Treatment)
Law 1971 absolutely prohibits imposing the death
penalty on a person who
was a minor on the date he perpetrated an offense.
E. Life imprisonment
- Section
25 of the Youth (Trial, Punishment and Modes of Treatment) Law 1971 provides
that, notwithstanding provisions of law, the
court is not obligated to impose
life imprisonment, mandatory imprisonment or a minimum penalty. However, in a
majority opinion,
the Supreme Court ruled that if a court finds it appropriate
to impose a life prison sentence in certain circumstances, it may do
so, even
with respect to a minor (Criminal Appeal 530/90 Anonymous Plaintiff v. State
of Israel, P.D. 46(3) 652). It should be noted that one of the Supreme
Court justices in that ruling expressed the view, basing herself in
part on the
Convention, that life imprisonment should be imposed on minors only in
exceptional cases. The remaining justices left
the matter as requiring further
review (Criminal Appeal 3112/94 Abu Hassan v. State of Israel (11.2.99
not yet published)). According to the above law, life imprisonment should never
be imposed on a child who, at the time
of sentencing, has not yet reached the
age of 14.
VII. FAMILY ENVIRONMENT AND ALTERNATIVE CARE
A. Introduction
- This
chapter addresses the implementation of articles of the Convention concerning
children and their families, and separation of
children from their families:
State respect and support of parental responsibilities (article 5), prevention
of the separation of
children from their parents (article 9), a child’s
right to be reunified with his family (article 10), prevention of illicit
transfer of children (article 11), measures to ensure that both parents fulfill
their financial obligation toward their children
(article 18), the prevention of
maltreatment of children in the family (article 19), the protection and care of
a child not able
to live with his family, and outofhome care (article 20),
adoption procedures (article 21), and opportunities for recovery and social
reintegration (article 39).
1. Definition of the term “family” in Israeli
law
- The
term “family” is not uniformly defined in Israeli law, and different
definitions can be found in different acts of
legislation. While some laws,
such as the Prevention of Family Violence Law 1991 and the Court for Family
Matters Law 1995 define
“family” very broadly to include all present
and former relatives, unmarried parents who jointly run a household, and
anyone
responsible for a child, other laws, including most of those that deal with
social security, adopt a more narrow definition.
In this chapter, in the main,
we will refer to the family as comprising children, parents and siblings.
2. Family structure
- Israel’s
population is relatively young. In 1996, children newborn to age 17
comprised 34.1% of Israel’s population.
In that year, 49.6% of the
households in Israel were families with children under age 17 (Central Bureau of
Statistics, 1999).
(a) Family size
- Family
size is an important descriptive indicator of families. As discussed in
Chapter VIII, large family size is a significant indicator
of poverty and
disadvantage in Israel, and large families have been the focus of components of
social policy such as child allowances
and income tax reductions.
- As
indicated in Table 8, in 1998 the average number of children in families with
children was 2.3 a decline from an average of 2.7
children per family in 1980.
Large families with four or more children comprise 16.7% of all families, while
approximately onethird
of all families have only one child. The number of
children in families varies greatly according to subpopulation: Jewish families
have an average of 2.2 children, while Arab families have an average of 2.9
children. Large families with four children or more
comprise of 12.3% of Jewish
families and 31.2% of Arab families. Among the Bedouin population of the town
of Rahat, 61% of the families
have four or more children. The
ultraorthodox Jewish population is also characterized by large families;
however, there are no systematic
national data on this group. Data on the city
of Bnei Brak, most of whose residents are ultraorthodox Jews, indicate that
children
comprise almost half (46.7%) of the city’s
population.
- New
immigrant families that came to Israel in or after 1990 tend to be smaller:
56.5% of them have one child, compared to 34.5% of
the general population, while
only 4.9% of these families have four or more children, compared to 16.7% of
those in the general population.
The overall decrease in family size during the
past two decades may be partly attributable to the wave of immigration in the
early
1990s.
Table 8
Number of children per family, by
sub-population (average and percentage)
1980
|
1998
|
Number of children
|
Total population
|
Total population
|
Jews
|
Arabs
|
Immigrants
|
Average
|
2.7
|
2.3
|
2.17
|
2.87
|
1.78
|
Percentage
|
|
|
|
|
|
1 child
|
27.3
|
34.5
|
35.7
|
25.6
|
56.6
|
2 children
|
31.3
|
30.5
|
33.9
|
24.7
|
31.2
|
3 children
|
20.5
|
18.5
|
18.1
|
18.5
|
7.1
|
4 or more children
|
21.0
|
16.5
|
12.3
|
31.2
|
5.3
|
Source: Ben-Arie and Zionit, 1999.
(b) Family composition
- In
Israel, most (92%) families with children are headed by two parents; the
remainder (8%) are singleparent families. There are fewer
singleparent
families in the Arab population, and significantly more such families among the
new immigrant population (19.8%). The
proportion of children in singleparent
families has increased in recent years, from 6.4% in 1994 to 7.4% in 1998.
Most (67%) single
parents are divorced, although 22% are widowed and 11%
were never married.
Table 9
Percentage of children in single-parent
families,
by sub-population, 1998 (in %)
|
Children in Single-parent Families
|
Total Population
|
7.4 (14)*
|
Jews
|
|
Immigrants
|
-- (22)
|
Ultra-orthodox
|
2.9**
|
Arabs
|
2***
|
Source: Ben-Arie and Zionit, 1999.
*
The figure in parenthesis is the percentage of households headed by
a
single parent.
** Estimate based on data from the city of
Bnei-Brak.
*** Estimate based on data from several Arab towns and
villages.
(c) Marriage and birth among minors
- The
Marriage Age Law 1950 prohibits the marriage of girls and boys under the age of
17. Until recently, boys under age 17 were not
prohibited from being married,
but the law was amended in 1998. The offense falls both on whoever marries a
girl or boy, and on
whoever conducts or helps conduct the marriage, including
parents who marry off their children. Under the law, the maximum sentence
for
this offense is two years’ imprisonment.
- Putative
marriage is cause for dissolving a marriage, if suit is brought by the girl or
boy before they reach the age of 19, or by
their parents, guardians or a child
protection officer before the girl or boy reaches the age of 18.
- However,
Family Court may permit a young girl to marry if she gave birth to a child or is
pregnant by the boy or man she wishes to
marry, and may permit a young boy to
marry if the girl or woman he wishes to marry is pregnant by him or has given
birth to his child.
The court may permit a young girl or boy to marry if they
have reached the age of 16 and the court believes that circumstances justify
the
marriage. The parent or guardian of a young boy or girl, or the person wishing
to marry them, may petition the court to permit
such a marriage. Common reasons
for allowing such marriages, apart from pregnancy or birth as specified by law,
include the consent
of the girl and her parents, the common practice of an
ethnic group, preparations for marriage, the age difference between the couple,
the couple’s financial situation, and family support. The court makes its
decision based on the good of the girl; of course,
the court also weighs the
couple’s wishes. Thus far there have been no requests to permit a
boy’s early marriage, but
it may be assumed that the rules would be
similar to those applied to girls.
- As
demonstrated in Table 10, marriages of minors under age 17 are rare in Israel.
The highest incidence of minor marriages is among
Arab girls age 17. In 1996,
14.6% of the Arab girls that age were wed. In comparison, only 1% of the Jewish
girls in the same cohort
married that year. Minor marriages are far less common
among men, both Jews and Arabs (0.05% and 0.15% of the men age 17,
respectively).
As shown in Table 10, the proportion of marriage among minors
has declined steadily among men and among Jewish women during the
past two
decades. Although the overall decrease in minor marriages among Moslem girls
has been less pronounced, there has been a
significant decrease in marriages
among girls age 16 or less from 1.96% in the late 1970s to 0.07% in
1996.
Table 10
Percentage of minors (age 16-17 or less) marrying,
by gender and religion
|
|
Boys
|
Jews
|
Moslems
|
Jews
|
Moslems
|
Age
|
16
|
17
|
16
|
17
|
17
|
17
|
1975-1979 (average)
|
0.12
|
4.84
|
1.96
|
13.3
|
0.12
|
0.22
|
1985-1989 (average)
|
0.24
|
1.74
|
1.54
|
14.0
|
0.03
|
0.17
|
1996
|
0.06
|
0.72
|
0.07
|
14.6
|
0.03
|
0.03
|
Source: Ben-Arie and Zionit, 1999.
- It
should be remembered that marriage to a girl age 17 or less is illegal (unless
special permission is granted) under the Marriage
Age Law 1950 (see Chapter IV).
This being the case, in 1995, few girls in this age group (58 girls, 25 of them
Jewish) were registered
as being married. However there is evidence that in
some sectors of Israeli society, such as among Moslems, and among Jewish
immigrants
from the southern republics of the former Soviet Union, some girls
under the age of 17 are married privately, and not registered
as being married
until they reach the age of 17. Public health nurses have indicated that some
of these girls become pregnant and
register at family health centers as single
mothers. However, there are no data on the extent of this phenomenon. The
nurses interviewed
estimated that it is not widespread.
- Births
to single minors are also rather uncommon in Israel. In 1998, 4,565 children
were born to girls age 19 or younger that is,
1.8 births per hundred girls ages
1519. Most (80.1%) of the girls were married, and the majority of them (59.4%)
were Moslem. These
births comprised 1.9% of all births in Israel that year.
Among girls in this age group, legal abortions were one and onehalf times
more
common than births. As noted elsewhere in this report, girls may legally
consent to an abortion without the consent of their
parent or guardian. The low
rate of births to minors may be related to this.
B. Articles 5, 9 and 18 (1)(2) of the Convention
1. Parental guidance and responsibilities
(a) Parents’ legal responsibilities
- The
Guardianship and Legal Capacity Law 1962 stipulates that parents are the natural
guardians of their minor children. Section 3
of the Women’s Equal Rights
Law 1951 stresses that subordinate to the best interests of the child, both
parents are equally
responsible as the child’s guardians and that, in case
of the death of one parent, the surviving parent remains the child’s
natural guardian.
- According
to the Guardianship and Legal Capacity Law 1962, parents, as guardians, have the
right and obligation to provide for their
child’s needs, including
education, schooling, and vocational training. The Supreme Court has ruled that
the needs of the
minor for which parents are responsible should not be
interpreted narrowly, and that these needs include “not only the
minor’s
material needs but also other needs deriving from his age and
position as a ward, such as the need to guard his safety” (Civil
Appeal
587/73 Shauli v. Mizrahi, P.D. 30(1) 533, p. 539). Parents are
required to protect, manage and develop their children’s financial assets.
They must
protect the best interests of their children as devoted parents would
under the circumstances. Parental guardianship includes the
authority to have
custody of them, determine their place of residence, and represent them. The
parents’ rights and obligations
toward their children have been discussed
by the Supreme Court in a string of rulings. For example, the Supreme Court has
written:
“It is a law of nature that a child grow up in the home of his father
and mother: It is they who will love him, feed him, educate
him, and support
him until he becomes an adult. This is the right of a father and mother, and
this is the right of their child”
(Civil Appeal 6106/92 Anonymous
Plaintiff v. Attorney General, P.D. 48(2) 833, p. 836).
“The law recognizes the parents’ right over their children: both
the right itself, and its limitations. In recognizing
this right and its
limitations, the law embraces a natural phenomenon that is deeply imprinted on
man and beast. Thus man: ‘As
a father has compassion on his children so
the Lord has compassion on those who fear him’ (Psalms 103, xiii).
Or: ‘Can
a mother forget the baby at her breast and have no compassion on
the child she has born? Though she may forget, I will not forget.’
(Isaiah 49, xv) (note: the rule and its exception). And beast and fowl:
‘Like an eagle that stirs up its nest and hovers
over its young, that
spreads its wings to catch them and carries them on its pinions’
(Deuteronomy 32, xi). This is a creature’s
survival instinct, and the
court is obliged to adopt it” (Civil Appeal 3798/94 Anonymous Plaintiff
v. Anonymous Defendant, P.D. 50(3) 133, p. 165).
“The right of the parents in education, teaching, and all aspects of
guardianship is the right to fulfill their obligation as
guardians of their
children ... thus and consequently, realizing this ‘right’ of
parents is subjugated to the principle
of the best interests of the child”
(Special Court Martial 1/81 Nagar v. Nagar, P.D. 38(1) 365,
p. 393).
- However,
there is no single method that is forced upon parents in fulfilling their rights
and obligations toward their children.
Rather, in carrying out their duties,
“parents have the right to decide the way that seems the most correct and
best way to
meet the needs of the minor... this ‘way’ differs among
different parents, based on to their worldview and lifestyle”.
Children,
for their part must, under section 16 of the law, obey their parents in all
matters of guardianship.
- According
to section 18 of the Guardianship and Legal Capacity Law 1962, parents are
required to make decisions based on mutual consent
between them. A parent may
only take action regarding his child without the other parent’s consent if
a matter is urgent and
cannot be delayed. The Supreme Court has ruled that in
the case of divorced parents, one of whom has custody of the children, that
parent “has the discretion to make decisions that are either extraneous or
inherent to the right of custody, without consulting
the other parent... It is
difficult to draw the line between topics that are subsidiary to custody, and
those regarding which a decision
must still be made by both parents, but it
seems we may generalize and say we mean decisions of principle pertaining to the
parent’s
general rightobligation toward his child that is, concern for
the minor’s general and religious education, supervision of
his property,
care of his health. In these matters, parents must decide by mutual cooperation
and consent” (see Civil Appeal
2266/93 Anonymous Plaintiff (Minor) v.
Anonymous Defendant, P.D. 49(1) 221, p. 246). According to
section 19 of the law, if parents cannot reach an agreement regarding their
children, the
court, or someone designated by the court, will rule on the
matter, but only if the court is unable to get the parents to agree,
and if it
has found that such ruling is necessary.
- As
stipulated in section 20 of the law, parents are forbidden to perform several
legal actions on behalf of their children without
the court’s approval.
These are financial actions of significance, such as selling a house, or actions
that are liable to
create a conflict of interests between parents and their
minor children, such as legal actions between a minor and his parents or
his
parents’ relatives, with the exception of accepting gifts given to a
minor. The Supreme Court ruled that section 20 “should
not be interpreted
too narrowly, but rather in a way that will
achieve its aim of affording effective supervision of a range of issues that
may have considerable implications for the minor’s
assets” (see
Civil Appeal 112/79 Sharf v. Avar, P.D. 34(3) 178, p. 194; see
also Civil Appeal 1763/88 Pilovsky v. Balas, P.D. 45(4) 521,
p. 527)
- A
parent’s failure to provide for his child’s needs may constitute a
criminal offense. Section 323 of the Penal Law 1977
states:
“A parent, or any person responsible for a minor living in his
household, is obligated to provide for all of the child’s
needs, to care
for his health, and to prevent his abuse or physical injury; the parent will be
held responsible for any harm to the
child’s health or life caused by
failure to fulfill this obligation”.
- The
Penal Law defines specific breaches of this obligation, which are subject to
penalty. For example, section 6 of section 10 of
the Child Abandonment Law
defines as a criminal offense the abandonment or neglect of a child or the
transfer of a child to another
in return for personal gain or in defiance of
parental duties and rights. Abandonment and neglect of children are two of the
few
offenses where a penalty is imposed for inaction rather than action. The
Supreme Court has explained that this reflects the special
importance with which
Israeli society regards a parent’s obligation toward his child (Civil
Appeal 5587/93 Nahmani v. Nahmani, P.D. 49(1) 485, p. 498).
- According
to a ruling by the Supreme Court, a parent’s failure to care for his
child, including withholding mental and emotional
support, may also constitute a
tortious wrong, the commission of which may entitle the child to compensation
(Civil Appeal 2034/98
Amin v. Amin (4.10.99 not yet published)). Most of
the criminal offenses involving a violation of parental obligations toward
children are committed
against children age 14 or less. This differs from civil
law, such as the Guardianship and Legal Capacity Law 1962, which applies
to
minors up to age 18.
- A
parent’s obligation to care for his child is also implied by the Adoption
of Children Law 1981. Section 13 of this law states
that a child may be adopted
even without parental consent under certain circumstances, for
example:
“(4) The parent abandoned the child or avoided maintaining personal
contact with the child, with no reasonable cause, for six
consecutive
months.
(5) The parent avoided, with no reasonable cause, maintaining all or most of
his obligations toward the child, for six consecutive
months.
(6) The child was kept outside the parent’s home for six months
beginning before the child reached age six, and the parent refused,
with no
justification, to accept the child in his home.
(7) The parent is unable to care for the child properly because of his
behavior or condition, and there is no chance that his behavior
or condition
will change in the foreseeable future, despite financial and care-oriented
assistance offered by the welfare authorities.”
- The
Supreme Court has ruled that a child may be put up for adoption without his
parents’ consent if they have neglected their
emotional and psychological
duties that is, if they have failed to show love and concern or provide
emotional support (Civil Appeal
549/75 Anonymous Plaintiff v. Attorney
General, P.D. 30(1) 459).
(b) Income support for families
- Israeli
labor law, along with a comprehensive system of cash entitlements and other
benefits, provides support for mothers and families
during pregnancy, at birth,
and during postnatal care. A pregnant woman must notify her employer of her
pregnancy by the fifth month.
Thereafter, she may not be employed for more than
six days a week, on the weekly day of rest, or at night, and she may not work
overtime hours without her consent and a physician’s permission. A
pregnant woman who has been working for the same employer
or at the same
workplace for at least six months may not be dismissed by her employer without
special permission from the Minister
of Labor and Social Affairs. An employer
who dismisses a pregnant woman without ministerial permission is subject to
criminal liability,
and must reinstate the employee. If a pregnant employee is
dismissed before she has informed her employer of her pregnancy, she
is to be
reinstated, but no sanctions are imposed against the employer.
- Pregnant
women are entitled to paid absences from work for routine medical examinations.
A pregnant woman who receives medical confirmation
of her inability to work for
a specified period may take a paid leave from work with no effect on any
seniorityrelated rights. Under
a recent amendment to the National Insurance
Law, women who are unable to work due to a highrisk pregnancy receive the
equivalent
of their salary from the National Insurance Institute, up to 70% of
the average wage.
- When
a child is born, the cost of the mother’s hospitalization and delivery is
paid by the National Insurance Institute. Women
who give birth or adopt a child
receive a grant equivalent to 20% of the average wage (or more in the case of a
multiple birth) to
help cover some of the initial cost of preparing the home for
the baby. This maternity grant is paid to all women residents or wives
of
residents of Israel, even if they gave birth in a hospital outside of Israel,
and to women working in Israel or wives of men working
in Israel, provided they
gave birth in a hospital in Israel. A similar grant is given to adoptive
parents. At present, the maternity
grant is equivalent to roughly US $300. In
the case of a birth of triplets or more, the family receives an expanded benefit
of between
25% and 35% of the average market wage for 20 months following the
birth.
- According
to the Employment of Women Law 1954, mothers are entitled to a threemonth
maternity leave paid by the National Insurance
Institute. If the mother agrees,
the father may take half of the maternity leave; in such a case, he will receive
the maternity
benefit in her stead, provided both parents are eligible under the
law. At the end of the paid maternity leave, the mother is legally
entitled to
take an additional, unpaid leave of absence for up to nine months
(dependent on how long she was employed prior to giving
birth), with full
security against termination of employment. Fathers whose wives worked for at
least six months prior to giving
birth may take the unpaid leave of absence
instead of their spouse. This right also applies to fathers who have sole
custody of
the infant or whose wives are incapacitated, as well as to adoptive
fathers. During the first four months following maternity leave,
mothers who
work in a fulltime position may work one hour less per day with no decrease in
salary. Adoptive mothers enjoy the same
rights and benefits as biological
mothers with respect to maternity leave. Other laws enable parents to devote
themselves to caring
for their children without suffering undue economic loss.
For example, the Severance Pay Law 1963 entitles a woman employee who
quits her
job to care for a child to receive severance pay during the first nine months
following childbirth or the adoption of a
child under the age of 13. A male
employee who quits his job to care for a child is also entitled to severance pay
during the same
ninemonth period, provided the mother has not done the same
(e.g., if she is selfemployed and has not stopped working to care for
the
child), or provided the child is in the father’s sole custody because of
the mother’s disability or illness. In
addition, under the Equal
Employment Opportunities Law 1988, male employees are entitled to day care
services, shortened work days,
maternity absences due to a child’s
illness, child care expenditures covered by employers, and any other benefit
offered to
female employees, provided the child is in the sole custody of the
father or the mother has not taken advantage of these benefits.
- The
Sick Day Payment (Absence from Work due to Child’s Illness) Law 1993
grants parents six paid absences a year for a child’s
illness, or 30 days
a year (which may correspond to regular vacation time) in case of a
child’s terminal illness. Many work
places grant additional privileges,
such as shorter work days for mothers or employers’ participation in day
care expenses.
- All
families residing in Israel receive a monthly child allowance from the National
Insurance Institute. This allowance is paid regardless
of income, based on the
number of children up to age 18 in the family. In addition, many of the
National Insurance Institute’s
income maintenance and income support
programs take into account the number of children in a family when calculating
the level of
benefits. Until recently, the National Insurance Institute
followed a policy of offsetting children’s allowances against
parents’
income tax debts. This policy had a disproportionate effect on
poorer families, and hence on their children. After intensive lobbying
by
nongovernment organizations concerned with children’s rights, the National
Insurance Institute agreed to refrain from offsetting
child allowances against
tax debts; a private bill to amend National Insurance Regulations has passed the
first step toward ratification
in the Knesset (for more information on social
security benefits, see Chapter VIII).
(c) Guidance in the care and education of children
(i) Family health centers
- Guidance
regarding all aspects of child care is offered to parents at over one thousand
family health centers (“wellbaby clinics”).
The centers provide
preventive health care for pregnant women and children from birth to age five,
as well as health education and
counseling. They are community based, and take
an holistic approach to care. It is estimated that 95% of children under two
and
a half years of age visit them. A national survey conducted on a sample of
centers revealed that programs that support and guide
parents are offered in
onethird of them, primarily in the Jewish sector. Most of these programs
promote parenting skills, improve
the relationship between mother and child, and
foster child development. About half of the programs promote children’s
health.
(ii) Community centers
- Another
widespread service is the network of 183 community centers, which offer
cultural, educational and recreational programs for
people of all ages.
Community centers offer five types of service which are of help to families:
1. Day care centers for children ages onethree (see Chapter VIII).
- Enrichment
and guidance programs, such as play facilities, for parents and young children.
In such programs, professional staff play
with the children and their parents,
and counsel the parents on child development and interaction with their
children.
- Guidance
workshops for parents, at which groups of parents meet regularly with
professional facilitators to discuss parenting. The
groups are usually
organized for parents of children in a given age group (e.g., infants,
school children, adolescents).
- Social
clubs for women offer support for women, including on issues of motherhood.
- Innovative,
multidimensional enrichment and guidance programs for immigrants and
disadvantaged populations. These programs involve
work with small groups of
mothers and children, and combine several weekly activities: day care for
preschool children, motherchild
playtime with a child development instructor,
and guidance workshops for mothers (and sometimes fathers, as well). These
programs
aim to help immigrant families adjust to their new environment, for
example by familiarizing them with preparation of the foods available
in Israel
and helping them understand their role in the school system.
(iii) Enrichment programs for young children
- Over
the years, Israel has developed a variety of enrichment and support programs for
young children and their families. However,
analysis of these programs
indicates that they are not cohesive, and do not meet the full range of needs:
Despite the variety and
quantity of programs, many of them are limited in size
and operate locally, as the result of a private initiative. Many of these
programs are brief in duration.
- Furthermore,
most of the programs for young children focus on one or two aspects of child
development, rather than adopting a comprehensive
approach. For example,
programs supported by the Ministry of Education emphasize children’s
cognitive development, and offer
limited intervention with parents. Programs
supported by the Ministry of Labor and Social Affairs emphasize parenting skills
and
the parentchild relationship. Unfortunately, even those programs that
are comprehensive are not available to all children and families.
For example,
a national survey of 250 programs offered in family health centers around the
country revealed
that only 10,000 of the 350,000 children newborn to age two benefited from
these programs (Dolev and Yoel, unpublished). However,
there are no systematic
data on the extent of participation in all early childhood enrichment and
support programs.
(d) Support for families from social services
(i) Social welfare departments
- Additional
support for parents is provided through social services. The Social Service Law
1959 requires local authorities to provide
most social services; these are
usually provided through a local social welfare department, which is divided
into neighborhood branches
that are staffed by professional social workers.
Social welfare departments are supervised by the Ministry of Labor and Social
Affairs
and follow its policies.
- In
1996, social welfare departments served 280,179 children in 114,260 families
14% of the children in Israel. Of them, 14% had
immigrated to Israel with their
families in or after 1990. One of the main tasks of a social welfare department
is to assign families
in need a “family worker” that is, a social
worker who assesses the family’s needs, counsels, helps with bureaucratic
procedures, and mediates between the family and other services
(e.g., schools). In some cases, a family is also assisted by a
paraprofessional
worker who visits it regularly and provides information,
guidance and support. Families in need of greater support may be referred
to a
family counseling service; in 1995, 9,500 families (and 35,000 children)
benefited from such services. In 1996, 19 centers
for the prevention of family
violence were in operation.
- As
income maintenance benefits are paid by the National Insurance Institute, social
welfare departments offer only limited financial
help directly to families. In
1995, 35,000 families received help purchasing basic appliances, 140,000
families received temporary
assistance with rent and mortgage payments, and
4,500 families received help with household expenses.
- Social
welfare departments also help place children in day care centers, which are used
predominantly by working mothers; in some
cases, particularly if a family is
unable to adequately care for a child, the social welfare department they will
refer the child
to a center and finance his attendance. In 1995, 12,455
children were placed in day care centers or family day care by a social
welfare
department.
- Afterschool
frameworks provide older children with supervision, hot meals, recreation,
informal education, and some therapeutic services.
In 1995, approximately
10,000 children were placed in such frameworks by social welfare
departments a dramatic increase from the
4,000 children who were
placed in such frameworks in 1989. This increase was the result of cooperation
between the Ministry of Labor
and Social Affairs and the Ministry of Education,
which together aimed to increase the number of afterschool frameworks. (For
more
information on the afterschool frameworks provided by the Ministry of
Education, see Chapter IX.)
- In
recent years, communitybased programs have been developed for young families
with multiple problems. These programs teach basic
life skills (such as family
budget management), parenting skills, and family interaction skills. Many of
them target families in
which the children are subjected to, or are at risk for,
abuse and neglect. Some of these programs were developed in Israel, while
others were “imported” from the United States and Europe and adapted
to Israel’s
service system and culture. Unlike
“traditional” programs, which focused on the child, these
communitybased programs
focus on the child in the context of his family, and
enlist community resources in helping parents care for their children.
- Following
are some examples of these programs:
(a) Home Start is a
volunteer program designed particularly for isolated families who do not easily
request and accept help from
social workers. This program was
“imported” from the United Kingdom in 1989, and involves
establishing a relationship
between the family and a nonprofessional
“friend” who visits regularly. In 1995, this program served 400
children.
(b) Mutuality helps parents develop a reciprocal relationship
with their infant.
(c) Video Home Training involves visits to homes by a
social worker, who films everyday interaction with a video camera. Later,
the
family watches the video and discusses the behavior patterns that it reveals.
An outcome study, which compared families who
participated in the program with a
control group, found marked improvement in almost all aspects of
children’s well being and
family communication in the participating
families. In 1995, 400 families were served by this
program.
(d) Together is a threeyear program, which comprises group
meetings at which mothers of children at risk work to improve their selfesteem
and parenting skills. In 1995, the program was implemented at 33 sites, serving
630 mothers of 1,800 children.
(e) Multipurpose Day Care Facilities are
innovative, and combine child care with support for families at risk. In
addition to offering
day care for infants and afternoon care for preschool
children, the program welcomes parents to participate and offers formal and
informal support and help improving parenting skills. In 1995, 700 children
benefited from this service.
(f) Big Brother/Sister programs involve
weekly or biweekly meetings between a child and a supportive adult or youth.
Such programs
are implemented by local nongovernment organizations and
universities, as well as by the Ministry of Labor and Social Affairs. In
1995,
800 children were assigned a big brother/sister by the Ministry of Labor and
Social Affairs; however it is estimated that a
much larger number of children
are assigned a big brother/sister by another agency. (For example, in 1994,
some 7,000 children enjoyed
this program in Haifa alone; Leitner,
1996a.)
- It
is important to note that, despite the significant effort invested in
establishing these programs, they remain limited in scope.
As is evidenced by
the small numbers of children and families served by each program, few of the
children and families who are known
to social services receive such support.
Table 11 presents the number of children who participated in each of the
services described
above (through the Ministry of Labor and Social Affairs) in
1995. If we assume that each child benefits from only one service, the
total
number of children receiving any of these services was 26,555.
Table 11
Children receiving services through a social
welfare department, 1995
|
Number of children
|
Total (assuming each child receives one service)
|
26 555
|
Daycare (social service referral)
|
12 455
|
Afterschool framework
|
10 000
|
Home start
|
400
|
Video home training
|
400
|
Together
|
1 800
|
Multipurpose day care
|
700
|
Big brother/sister
|
800
|
Source: Korazim, 1996, and information from the Ministry of
Labour and Social Affairs.
- A
comparison of these figures to the number of children known to social welfare
departments (280,179 in 1996) indicates that less
than 10% of the children known
to social welfare departments benefit from these programs. Obviously, not all
of the children known
to social welfare departments need these services, while
other children and families are served in other ways (e.g., through
counseling
by a social worker, family counseling, outofhome care). Conversely,
not all families in need of support are known to social services.
Thus, further
information and analysis are required to determine the extent to which services
meet the needs of children and families.
Existing data do indicate extensive
disparity between the needs of families and the coverage of support services.
This conclusion
is also supported by detailed analyses conducted in two cities
(Haifa and Beer Sheva) as part of comprehensive community planning
of services
for children and youth at risk (Leitner, 1996a, 1996b). The analyses revealed
that only onethird of the children surveyed
received day care, afternoon care,
or intensive counseling from a social worker. Thus, despite rapid development,
the adequacy of
coverage is still at issue.
- Table
11 also reveals that outofhome services (e.g., day care facilities and
afterschool frameworks) predominate as means of helping
families raise their
children. Programs that involve parents actively are still being developed and
tested, and programs that support
the child within his family are not
widespread. Policymakers claim that the relatively slow pace of dissemination
of holistic programs
is due to both a lack of resources, and to a need to train
and educate service providers.
- There
is no comprehensive, national information on the extent of service coverage for
specific populations, such as new immigrants
or Arabs. However, a recent study
conducted by the Ministry of Labor and Social Affairs in three Arab towns in the
north of Israel
(Korazim, Abu Asbah and Dolev, forthcoming) revealed that,
despite the relative large percentage of children who live in poor families,
and
the relatively large percentage of large families, in the Arab population,
relatively small percentages of Arab children are
known to the social services,
as indicated by limited social service coverage. Thus, even though a similar
proportion of those children
known to the social services receives support, the
extent of support is more limited in the Arab than in the Jewish sector. In
addition,
the small size of Arab towns limits the extent to which innovative
service models can be developed costeffectively, and poses a challenge
to making
services accessible.
(ii) A Ministry of Labor and Social
Affairs program for children at risk
- In
1997, the government made children at risk a national priority. Consequently,
the Ministry of Labor and Social Affairs initiated
a program that it hoped would
have a significant effect on this population. “Children at risk”
were defined broadly
as being children whose circumstances might impair their
ability to adjust to school, society and family life. The children covered
by
this definition include those subjected to abuse, neglect, and family violence,
those living in impoverished or dangerous environments,
and those with
destructive or problematic behaviors, such as substance abuse and delinquency.
The program combines legislative initiatives
and service development.
- Legislation:
In 1998, a new law “Entitlement to Services of Children at Risk”
was proposed. The law would entitle children
defined as being “at
risk” to services, and would define the State’s obligation to supply
these services. The
extent of entitlement to services would be determined
according to the degree of risk. According to the proposed law, decision
committees
in local authorities would determine the degree of risk (i.e. the
level of services to which a child is entitled), and prepare a
care plan for the
child and his family. The proposed law is innovative in its stressing the right
of children at risk to services,
rather than the State’s obligation to
provide services. Furthermore, it would make the provision of services
independent of
local or national government budgets. At the same time, the
proposed law would limit the period of entitlement to one year, thus
ensuring
frequent monitoring of a child’s situation and of the success of the
intervention plan prepared for him. In fact,
the proposed law would require
hearing the child himself during discussion and preparation of the care plan,
involving the child
and his family in preparing the plan, and giving precedence
to services that would enable the child to remain with his family (Proposed
Law
on the Right of Children at Risk to Receive Services 1998).
- Service
development: The proposed service would be based on familyfocused intervention,
cultural sensitivity, pooling of resources,
and longterm treatment planning,
focusing on the family’s strengths and considering its priorities. The
plan is to establish
“family and child centers” within local social
welfare departments, which would be adapted to the cultural style of each
community. Each center would house subunits to handle screening, intake and
evaluation, family and couples therapy, prevention and
treatment of family
violence, the childparent relationship, singleparent families, parent training,
children at risk, and emergencies.
- In
1997, seven locations were chosen for a pilot of this program. In 1998, the
program began to be implemented on a national level,
using government resources
allocated to towns based on a plan submitted to the Ministry of Labor and Social
Affairs. The government
allocated NIS 75 million (about US $20 million) per
year for two years (1998 and 1999) of national implementation. As yet, there
are no systematic data on the program’s activities, the extent to which it
has expanded service provision, or its outcomes.
(iii) Support for families in the education
system
- Support
for families is also available from guidance counselors who are employed in
middle, secondary and some elementary schools,
who counsel students with
scholastic, behavioral or emotional problems. Students are usually referred to
a guidance counselor by
a teacher, although they may also be referred by their
parents or may seek out the counselor themselves. Students with severe problems
are usually referred to psychological services either in or outside the
education system. Educational psychologists assess children
referred to them by
schools and offer limited personal intervention. School psychologists advise
teachers and parents how to address
the children’s problems in the
classroom. The extent of coverage provided by these services is also an issue.
School psychologists
and guidance counselors often have large caseloads that do
not allow for intensive intervention. A 1995 survey of the educational
psychology services in two cities indicated that only 25% of the cases referred
to them received treatment, as opposed to assessment
only, or counseling for the
teachers involved.
(iv) Support for singleparent families
- Several
ministries provide additional support to singleparent families. The Single
Parent Families Law 1992 entitles these families
to specific benefits such as a
reduced income taxes, an annual grant of 18% of the average salary for children
ages six11, and priority
receiving a place at a public day care facility and/or
a government housing loan. In 1995, the 38 centers for singleparent families
operated by the government served about 7,500 families. These centers offer
social activities, counseling and legal aid. A nongovernment
organization of
singleparent families, “Meihad”, which is part of the largest
women’s organization in Israel (NA’AMAT)
operates centers for
singleparent families that both provide services and engage in
lobbying.
2. Separation of children from their parents
(a) Divorced
or separated parents
(i) Determining custody of a
child
- Sections
14 and 15 of the Guardianship and Legal Capacity Law 1962 regard both parents as
being a child’s natural guardians
and grant them the right to determine
where the child will reside. If the parents live apart, they may come to an
agreement regarding
who will have exclusive or partial guardianship of the
child, who will have custody of the child, and what visitation rights the
noncustodial parent will have. This agreement must by approved by a court to be
legally binding (section 24). The law determines
that if the parents cannot
reach an agreement, or if the agreement is not implemented, the court will make
custody and visitation
arrangements based on what it believes to be the best
interest of the child, with the exception that children under age six will
be
placed with their mother unless there is a reason to rule otherwise (section
25). The Supreme Court has decided that a court
must rule in the matter of
custody even when the parents, although legally separated and estranged,
continue to live together and
with their children in the same house, as the
children should not be left without a determination of who is responsible for
their
needs basically a matter of custody. Prior to making such a decision,
the court may ask a child protection officer to review the
case, report factual
findings
and make recommendations (Welfare Law: Minors, Mentally Impaired Persons,
and Persons in Need of Protection 1995). Child protection
officers may approach
a Family Court on their own initiative, with the approval of the attorney
general (section 3[4] of the Family
Courts Law 1995). Children may also
petition Family Court, either themselves or through a close friend, concerning
“any matter
in which the child’s right may be substantially
undermined”. Family Courts are assisted by support units composed of
social workers, psychologists and psychiatrists who supply diagnostic,
counseling and care services (section 5 of the Family Courts
Law 1995; Family
Court (Establishing Support Units) Decree 1996; Family Court (Support Units
Professional Skills and Supervision)
Decree 1996). These units help parents
arrive at a custody agreement and avoid confrontations that may be damaging to
the children.
- When
parents fail to arrive at a custody agreement, custody may be determined either
by a Family Court or a religious court. Determining
the legal authority in this
matter is complex, and has been the topic of many verdicts and learned sections.
It has been determined
that in some cases authority is granted to Family Court,
although if both parents agree, the case may be heard by a religious court.
In
yet other cases, authority is granted to the court that was approached first.
- The
importance of the instance that determines custody lies in the effect that
religious norms and mores may have on a religious court’s
perception of
the “best interests of the child”. The Supreme Court has overruled
decisions by religious courts when
these clearly do not serve the best interests
of the children but rather are based solely on religious value judgments. Thus,
for
example, the Supreme Court overruled a decision by a rabbinic court to
transfer custody from a mother to a father, even though the
father could not
raise them in his home and hence intended to send them to a religious
institution. The rabbinic court had based
its decision on its aversion to the
mother’s cohabitation with a nonJewish man.
- As
for the meaning of “the best interests of the child” with regard to
custody, it is generally believed that living with
one parent is preferable to
residing at a boarding school. Continuity of custody is also considered
compatible with a child’s
best interests so that, as a rule, custody will
not be transferred from one parent to the other. The parents’ financial
situation
and ability to provide stable living conditions are also taken into
account. Usually, an effort is made to avoid separating siblings.
Joint
custody of separated parents is not common, and the courts usually award custody
to one parent and visitation rights to the
other. Rulings on custody and
visitation rights usually take the children’s wishes into account, in
consideration of their
age, maturity, and judgment. However, it should be noted
that there is no easy way for a child to petition the court independently,
and
that, in most cases, a child is not represented separately from his
parents.
(ii) Maintaining contact with both parents
- Section
24 of the Guardianship and Legal Capacity Law 1962 states that when parents do
not live together, the custody agreement or
court ruling in the matter must
determine “the rights of the noncustodial parent to have contact with the
child”. The
courts tend to determine custody arrangements that ensure the
child contact with the noncustodial parent.
- Under
certain circumstances, such as suspected abuse on the part of the noncustodial
parent, or noncompliance of the custodial parent
with the visitation rights of
the other parent, the court will order supervised visitation. Social welfare
departments operate “visiting
centers” where such visits may take
place with professional supervision and support.
- The
Supreme Court has ruled that maintaining contact with a child is not merely the
right of the noncustodial parent, but may be considered
his duty.
(b) Separation by the
authorities
(i) Legal procedures for separating a child from his
parents
- As
noted, the Guardianship and Legal Capacity Law 1962 grants a child’s
parents custody and guardianship. However, the same
law states that a court
may deny or limit parents’ guardianship if they do not fulfill their
obligations to their children
within reason (sections 2627). Under such
circumstances, the court is authorized to appoint a guardian for the child
in place of
or in addition to his parents.
- Removal
of a child from his parent’s custody and restriction of parental custody
are regulated in detail by the Youth (Care
and Supervision) Law 1960, which
supplements the Guardianship and Legal Capacity Law 1962. For example, removal
of a child from
his parent’s custody is possible if “the person
responsible for the minor is unable to care for him or is neglectful
of
same” (section 2(2) of the Youth Law); if the minor “is under evil
influence or is living in a place where offenses
are regularly committed”
(section 2 (5) of the Youth Law); or if the minor “was born addicted to
drugs” (section
2 (7) of the Youth Law). In such cases it is possible to
“remove the child from the custody of his parents or guardians and
transfer him to the custody of the welfare services, which will decide where the
child will reside or instruct that he be kept in
an institution or secure
facility (section 3(4) of the Youth Law). The court order is restricted to a
period of three years, after
which it may be renewed if necessary.
- A
court order to remove a child from the custody of his parents does not revoke
the parents’ guardianship or their right to
maintain contact with the
child. The court may specify when and how often the parents may visit the
child, with or without supervision,
and whether the child may visit the
parents’ home. Generally, visitation arrangements are not specified by
the court decision.
- The
law provides for emergency situations: If a child protection officer is
convinced that a child is in danger, she is authorized
by section 11(a) of the
Youth (Care and Supervision) Law 1960 to take any steps necessary to
prevent harm to the child including
removing the child from his home and
placing him in a safe place as long as she does not hold the child for more
than seven days
without the consent of the court or of the child’s parent
or guardian.
- The
court is also authorized to remove the offending parent, rather than removing
the child from his home, under section 2 of the
Prevention of Family Violence
Law 1991, in conjunction with section 3A of the Youth Law.
(ii) Considering the wishes of the child and his parents
- According
to section 30 of the Guardianship and Legal Capacity Law 1962, the court may
revoke or limit a parent’s role as guardian,
or appoint an additional
guardian alongside the parent, only after the parent has been given an
opportunity to express his or her
opinion of the matter. The law does not state
the necessity of hearing the child’s opinion. On the other hand, the
court
may remove a child from the custody of his parents only after
“giving the minor, and his or her parent or guardian and the
child
protection officer a chance to express their opinion and suggestions”
(section 8). According to section 9 of the law,
however, “despite what is
stated in section 8, the court may avoid summoning the child if it is convinced
that he or she cannot
understand the matter, or if appearing before the court
will endanger the child”.
- The
emergency removal of a child from his parent’s custody for up to seven
days, as well as the court’s authority to extend
the removal, apparently
do not require that the child be heard.
- In
practice, parents are usually present and heard by the courts, unless they
refuse to appear. Children under the age of eight are
usually not present in
court, but children between the ages of eight and 11 are sometimes present,
depending on the child protection
officer’s assessment of the
child’s capabilities and on the judge’s preference. While some
judges insist on hearing
the child in court, others do not. Children age 12 or
older are usually present in court. A more systematic analysis of this
issue
is required as a basis for developing guidelines for uniform practice. It
should be noted that although the courts are authorized
to appoint an attorney
or guardian ad litum to a child in these proceedings, this is extremely
rare.
(iii) Local authority decision committees
- Most
of the children who reside in an outofhome placement are not separated from
their parents by court order under the Youth (Care
and Supervision) Law 1960,
but rather are removed from their home with the consent of their parents.
Residential placements are
decided upon by a “decision committee”,
which sits in each local social welfare department. Decision committees are
also involved in preparing the petitions and recommendations of child protection
officers for the courts. In an emergency, when
a court order is needed
immediately and the committee cannot meet beforehand, the child protection
officer will request a court order,
and the decision committee will convene
after the fact to approve it.
- The
government policy that guides decision committees is to avoid separating a child
from his parents. The regulations of the decision
committees state: “It
is preferable for the child’s development [that he] grow up in his or her
natural family. Therefore,
every effort should be made to develop services in
the community that will help the family raise the child. If the family
situation
endangers or might endanger the child’s physical or emotional
wellbeing or damage his proper development, placing the child
in an appropriate
setting outside of the home must be considered as a temporary or, if necessary,
a permanent solution”.
- Broadly,
decision committees are responsible not only for decisions about outofhome
placements, but for preparing treatment plans
for children in need of intensive
intervention. The options discussed may or may not involve separating a child
from his parents.
Decision
committees are interservice and multidisciplinary, and comprise both regular
participants and the professionals involved in the case
being discussed. These
committees are headed by a coordinator from the social welfare department, and
always include the family’s
case worker and the chief social worker.
Other services in the community (e.g., the school, local psychological
services) are represented
on the committee by professionals who are familiar
with the child and his family.
- Decision
committees are regarded by the Ministry of Labor and Social Affairs as the
primary mechanism for allocating services for
the protection and welfare of
children. Thus, emphasis is placed on their multiorganizational nature and on
the participation of
representatives of several community services. In
addition, the committees are regarded as mechanisms for planning and developing
community services. The Ministry also considers decision committees a mechanism
for implementing its national plan and proposed
legislation (see section (d) of
this chapter, above).
- Further,
the Ministry of Labor and Social Affairs regards decision committees as being an
important tool in implementing the Children’s
Rights Law. A comprehensive
study conducted between 1998 and 1999, which was initiated by the Ministry of
Labor and Social Affairs
in an effort to improve the work of the committees,
found the following:
− Decision committees discuss some 11,000 cases annually, constituting
less than 5% of the children known to social welfare
departments. The children
and parents who reach the committees are at high risk, and are already receiving
more services and interventions
than is common in the Israeli service system
(the characteristics of these children and their families are similar to those
of children
in boarding schools and children under the care of child protection
officers, and the extent of services they receive is similar
to that given to
the latter). Thus, in many cases, these children appear before the committees
after numerous attempts have been
made to leave them in the community (Dolev et
al., forthcoming).
− Despite the hope that the committees would be able to plan intervention
and followup without resorting to outofhome placement,
more than half of the
children who appear before the committees face outofhome placement. The
percentage of children who are removed
from their homes following discussion of
their case by a committee increases with age, reaching 70% among children ages
1218.
− Large percentages of the committee chairmen are satisfied with the
committees’ multiprofessional composition. However,
in about onethird of
the cases, professionals from organizations outside the social service system
were not present at discussions
of specific cases, and in another onethird of
the cases, only one such professional was present. Committee chairmen also
cited difficulties
recruiting professionals from educational, health, and mental
health organizations to participate in committee discussions, primarily
due to
problems of coordination. The proposed Children’s Rights Law would
mandate the participation of professionals from
other organizations in committee
discussions.
− Most committee chairmen are experienced social workers who were trained
in the area of children and youth, but who lack experience
conducting a
multiprofessional discussion, which requires a variety of skills and talents.
Furthermore, many of them hold several
positions in their social welfare
department, and hence are not able to concentrate solely on their role as
chairman.
− Finally, there is insufficient documentation of referrals to the
committees, of the committees’ work, and of implementation
of the
committee’s recommendations and their outcome.
- In
the wake of these findings, the Ministry intends to appoint a committee that
will make and implement operational conclusions.
(iv) The
participation of parents and children in decision committees
- The
Ministry of Labor and Social Affairs recommends that a child and his parents
participate in meetings of the decision committee.
Indeed, findings from the
study discussed above indicate a growing trend toward the participation of
parents, children and relatives
in the committees’ discussions. Based on
a sample of 230 committee discussions, a parent, child, or relative were
reported
to have participated in about twothirds of the discussions. One parent
participated in 60% of the discussions, while children participated
in 17% of
the discussions (the percentage was higher among children ages 1218 25%).
However, committee chairmen reported some persistent
problems: Children and
their parents are not always invited to participate in committee meetings, and
when they are invited, they
don’t always attend. In such cases, it is
rare that an additional meeting is scheduled to hear the parents and children.
Furthermore, even when parents and children do attend a committee’s
meetings, they do not participate in the entire meeting.
While committee
members listen to their views and opinions, they rarely involve them in
decisionmaking. Observations of decision
committees revealed that when parents
participate in a discussion, their participation causes them and the
professionals embarrassment
and discomfort.
- National
administrators in the Ministry of Labor and Social Affairs are aware of this
state of affairs, and attribute it to lack of
training and skills that would
enable professionals to engage the parents and children in discussion. Several
measures have been
introduced in order to encourage the participation of parents
and children in decision committees. For example, the Ministry of
Labor and
Social Affairs is beginning to implement a pilot program of “family group
conferences”, which will replace
decision committees. At these
conferences, the decision regarding the appropriate intervention for the family
including removal
of the child from his home if required will be placed in the
hands of the family, rather than being made solely by professionals.
The aim of
the pilot program is to examine whether the program can be implemented
nationally, while training staff to place more
discretion and responsibility in
the hands of parents. The program will initially be implemented at three
sites.
C. Article 10 of the Convention Family reunification
1. Entrance to Israel as a visitor
- According
to the Entrance to Israel Law 1952, the Minister of the Interior usually
through ministry staff has the authority to grant
permits to enter and stay in
Israel to visitors who are not citizens. Visitors from countries with which
Israel has visiting agreements
may enter Israel for up to three months, if there
is no specific reason to deny them entrance. However, the Ministry of the
Interior
can, and occasionally does, prevent the entrance of the children of
foreign workers who are in Israel without a permit.
2. Permanent residence in Israel
- The
Law of Return 1950 and the Law of Citizenship 1952 entitle Jews, their spouses
and children, including adopted children, and grandchildren,
to Israeli
citizenship. Thus, family reunification is automatic if children and
parents are Jewish; the Minister of the Interior
is authorized to grant Israeli
citizenship even to those who do not meet these requirements. It is the policy
of the Ministry of
the Interior not to grant permanent residence to nonJewish
foreigners who have no Jewish relatives, except under special circumstances
for
example if the person has served in the Israel Defense Forces (IDF). However,
once a person has become a citizen, citizenship
is also granted to his minor
children if they resided in Israel on the day citizenship was granted, and if
the parent who has become
a citizen has custody of them. If the minor is a
foreign citizen, and both his parents have custody of him but only one became a
citizen of Israel, the minor will not be granted citizenship if one of the
parents declares that he does not wish the child to have
Israeli
citizenship. Parents of citizens and permanent residents of Israel are not
entitled to family reunification, but the Minister
of the Interior may grant
them citizenship or permanent residency at his discretion.
3. Leaving Israel to emigrate or visit abroad
- Section
6(a) of the Basic Law: Dignity and Liberty states that “any person is
free to leave Israel”. According to section
8 of this law, this right may
only be violated by “a law that is compatible with the values of the State
of Israel, for a worthy
purpose, and only if said purpose does not exceed what
is required by law”. However, persons who wish to visit enemy countries
must receive a permit from the Minister of the Interior.
- The
Jerusalem Family Court has ruled that a parent who has custody of his children
may move them to another country, and separate
them from the other parent if the
children so desire and if it is not clearly against their best interest.
D. Article 11 of the Convention Illicit transfer and
nonreturn
- According
to article 11 of the Convention, States parties shall take measures to combat
the illicit transfer and nonreturn of children
abroad through interstate
agreements.
- Israel
is a party to the Hague Convention on the Civil Aspect of International Child
Abduction and has passed the Hague Convention
Law. Section 4 of this law
determines that the attorney general is the authority for implementing the
Convention, and he or she
may appoint child protection officers, who will work
under the supervision of the chief child protection officer and who will have
the authority granted them by the Youth (Care and Supervision) Law 1960.
- The
attorney general is permitted by section 5 of the Hague Convention Law to
transfer information to any person or organization,
in Israel or abroad, if
necessary to implementation of the Convention, as long as this information is
not used for other purposes
and remains confidential. A child protection
officer also has permission to pass on needed information, as granted by the
attorney
general.
- Family
Court is entitled by law to issue an injunction preventing children who have
been abducted, or anyone holding them, from leaving
the country; an
injunction preventing the children from leaving any place designated in the
injunction; an order to the police to
investigate the abduction, find the
children, and help the child protection officer bring the child to court; and
any injunction
or order that will prevent injury to the children or infringement
of the rights of anyone involved in the case, and that will ensure
the return of
the children or facilitate settling the dispute peacefully. Regarding such
instances, regulation 95/9(5) of the Civil
Law Procedures 1984 stipulates
that “if a child is of an age and level of maturity that warrant taking
his opinion into consideration,
the court will not decide the case prior to
hearing the child, unless the court sees the need to do so for special
reasons, which
should be recorded”.
- In
1992, the Ministry of Foreign Affairs publicized a list of the states with which
Israel has an agreement under articles 37 and
38 of the Hague Convention:
Argentina, Australia, Austria, Belize, Canada, Denmark, France, Germany, Great
Britain, Hungary, Ireland,
Luxembourg, Mexico, The Netherlands, New Zealand,
Norway, Portugal, Spain, Sweden, Switzerland, the United States, and
Yugoslavia.
- Table
12 indicates the total number of cases of children handled by the central
authority under the Hague Convention between 1993
and 1996. Of the 99 children
abducted and brought to Israel during those years, 53 were from the United
States and 10 from Canada.
Of the 78 children abducted from Israel
during those years, 32 children were taken to the United States, and 10 to
Great Britain.
- As
another means of preventing the illicit transfer of children in cases of
disagreement between parents, and in light of the stipulation
that both parents
are a child’s guardian, the Ministry of the Interior will issue a passport
to a child only with consent of
both of his parents. If one parent fears that
the other may attempt to illicitly transfer the child, he or she may request an
injunction
against the child’s leaving the country.
Table 12
Cases* of abduction handled by the Attorney General
under the Hague Convention
on the civil aspect of international child
abduction, 19931996 (in absolute numbers)
|
Children brought to Israel
|
Children abducted from Israel
|
Total
|
99
|
78
|
Returned, following court ruling
|
21
|
10
|
Not returned, following court ruling
|
9
|
4
|
Waiting for appeal
|
14
|
22
|
Petition withdrawn **
|
20
|
23
|
Reabducted to State of origin
|
1
|
2
|
Refusal by State authorities
|
1
|
1
|
State not party to Convention***
|
3
|
5
|
Case not active
|
19
|
10
|
Child not located
|
5
|
1
|
Visitation arrangement
|
6
|
0
|
Source: BenArie and Zionit, 1999.
* The figures
refer to cases, as in some instances more than one child was
involved.
** In 18 cases, the child was returned by
consent.
*** States that were not parties to the
Convention during this period.
E. Article 27 (4) of the Convention Recovery of maintenance
for the child
- In
Israel, issues of alimony and child support are determined by the laws of the
religion with which an individual is affiliated.
The Amendment to the Family
(Child Support) Law 1959 applies when an individual is not obligated to pay
child support to his or
his spouse’s children under the law of his
religion, or who has no religion, and so is not obligated by any religious law.
Section 3A of the law requires both parents to cover their children’s
expenses until they are 18, regardless of which parent
has custody. Under
section 6 of the law, if the parents have not reached an agreement, the court
will determine the amount to be
paid by each parent based on the child’s
needs and the parent’s ability. The court may define needs for child
support
even if it is doubtful that the parent can meet them, so as to ensure
payment from the National Insurance Institute, which is conditional
upon a court
order regarding the right to and the amount of child support. Section 17 of the
law stipulates that if a parent and
child reside in different countries,
payments will be determined according to the law of the State in which the child
resides. According
to section 12 of the law, the court may change a child
support arrangement if the child’s circumstances have changed. The
law
also allows the court to employ several measures the most severe of which is
imprisonment if a parent fails to pay child support
as required. In bankruptcy
proceedings against a parent who has failed to pay child support, these payments
are given precedence
over the claims of other creditors, including the tax
authorities.
- The
Maintenance (Assurance of Payment) Law 1972 states that the National Insurance
Institute will pay a child support allowance to
any person whom the court has
awarded child support, but who is not receiving these payments from the parent
who owes them. The
maximum child support allowance, set in State regulations,
currently equals 39.7% of the average wage for a woman with one child,
and 49.6%
for a woman with two children (National Insurance Institute, 1997). In 1997,
19,509 women received child support allowances
from the National Insurance
Institute; nearly all of them (99.3%) were mothers with children. Seventy
percent of the women had one
or two children, close to 20% of them had three
children, and 12% of them had four or more children.
F. Articles 20 and 25 of the Convention Children deprived
of a family environment
1. The alternative care system in Israel
- Between
65,000 and 75,000 (or 3% of all) children and youth in Israel live outside of
their family home. The exact number of children
and youth who live outside
their families can not be calculated due to insufficient data on the number of
children who live and are
educated in outofhome facilities or yeshivas,
particular in the haredi sector. Data on the number and nature of these
settings are also lacking. These children and youth may be divided to several
groups:
The majority (61,726) of them are ages 1418 and reside in boarding
schools, mostly out of personal preference. A smaller group
(9,599) of children
and youth are placed outside their home by social services in residential
facilities and foster homes. A yet
smaller number of youth are placed in Youth
Protection Authority facilities, which are geared for juvenile offenders and
youths with
severe behavior problems (see Chapter X).
- Children
placed outside their home by social services. In 1998, a total of 8,980
children newborn to age 18 resided in an outofhome
placement arranged by the
Ministry of Labor and Social Affairs. About 5,000 of these children were under
the age of 14, and the
remainder were adolescents ages 1518. Contrary to the
situation in most western countries, the majority of these children,
particularly
the older ones, lived in residential settings; a considerably
smaller number of them lived with foster families.
2. Foster families
(a) Children in foster care
- Reliance
on foster families began in Israel in the 1920s, and was considered a more
humane option for children without parents than
were institutions. However,
over time, the system of residential settings came to be seen as a more
attractive option. Approximately
onethird of the children under age 14 who are
in outofhome placements are in foster homes, while the remainder are in
residential
settings. As indicated by Table 13, in 1998, 1,523 children lived
with foster families; 22% of them were under age six. The proportion
of
children in foster care, as opposed to residential settings, is greater only
among children this age. Thirty percent of the children
in foster care live
with relatives from their extended family.
Table 13
Children placed in foster families by the Ministry
of Labor and Social Affairs
in 1996, by age (in absolute numbers and
%)
|
Number of children
|
Percentage
|
Total
|
1 523
|
100
|
06
|
346
|
22.7
|
714
|
853
|
56.0
|
1517
|
324
|
21.3
|
Source: Data from the Ministry of Labour and Social
Affairs.
(b) Foster care regulations
- Ministry
of Labor and Social Affairs regulations state that the goal of foster care is to
provide a child with a temporary home, from
which he may return to his
parents’ home or, if that is impossible, be transferred to another,
permanent home. Foster care
is considered preferable for children under age six
and for older children who do not have severe developmental problems. It is
not
recommended for children with severe emotional problems, or for children whose
parents are unable to accept the emotional attachment
between their children and
a foster family and who may thus interfere with the foster
relationship.
- Placement
is made as part of a comprehensive treatment plan for the child and his family
of origin. It is recommended that a child
be placed with a family that lives in
the same geographic area as his family of origin, unless:
(a) There are indications that the child’s biological
parents may harm him;
(b) The child needs special services not available
in the area;
(c) The biological parents are substance abusers or
criminal offenders;
(d) The children are being considered for adoption.
- The
social workers of the social welfare department are responsible for preparing
the foster family and providing constant guidance;
they visit the foster family
as needed, and at least once a month.
- The
regulations stress that the child’s natural parents remain the central
figures in the child’s life. Under the Guardianship
and Legal Capacity
Law 1962, a child’s biological parents remain his natural guardians,
unless the court has revoked this status.
Parents are entitled to be involved
in decisions about the child’s placement, such as the school system in
which the child
should be enrolled (religious or nonreligious). The social
welfare department is responsible for updating the parents about their
children’s progress, encouraging them to maintain contact with their
children by visiting them, and providing professional
help that will
rehabilitate the family and enable the child to return home.
(c) Issues in foster care
- In
recent years, there has been increasing awareness of the difficulties of
enforcing these regulations in the foster care system.
For example, although
the regulations stress that foster care is meant to be temporary, children
placed in foster families typically
live with them for several years, and often
until they are 18. In addition supervision of foster families proves difficult,
and
lack of systematic supervision creates barriers to enforcing the
Ministry’s policy and regulations.
- Currently,
several changes are being proposed or introduced into the foster care system, so
as to improve the care provided by foster
families and increase the
child’s possibility of returning to his biological parents. One of these
involves employing foster
family counselors in local social welfare departments,
whose task would be to assist foster families and maintain contact with the
professionals working with biological families. In addition, a clinical data
base has been developed for children in foster care.
This system helps follow
the child and his biological family as a basis for planning and decisionmaking.
Recently, a program has
been developed to select, train, and assist new foster
families. This program teaches 12 skills that have been found to help foster
families. New models of foster care aimed at improving supervision and
upgrading the quality of care are currently being piloted.
These include family
group homes, which serve a number of foster children in a family setting, and
“community foster care
clusters”, in which several foster families
in the same community (which serve children from that community) receive
counseling
and supervision, and special services for the children in their care.
Lastly, legislation is being initiated concerning foster care,
as to date there
are no laws that specifically define the rights and obligations of foster
families, biological families, and children.
3. Residential facilities
(a) The historical and social context of residential
care
- When
describing the residential care system in Israel, it is useful to note that in
Jewish and Israeli society, raising and educating
children in residential
institutions has not been seen as a drastic step that should be taken only when
a child cannot remain at
home. Education away from home at a yeshiva
(Jewish religious school) was and is acceptable and even prestigious. Until
very recently, children raised in the influential kibbutz
movement lived and
were educated communally; to this day, adolescents on kibbutzim usually live in
group homes.
- Following
the Second World War, and with the establishment of the State of Israel
in 1948, boarding schools and kibbutzim were homes
for young, parentless
refugees. During the mass immigration of the 1950s, residential settings
continued to enjoy prestige, and
were considered ideal for helping newcomers
including children who arrived with their families become integrated into
Israeli society.
In later decades the function of residential settings shifted;
gradually, they came to serve children at risk and children whose
needs could
not be met at home.
- Over
time, professional attitudes also changed, and outofhome placement came to be
seen as less desirable than communitybased solutions
for children. However,
this historical and social context explains why educating children and youth in
residential settings is still
seen by many, including parents and children, as
legitimate, and not as an extreme step involving the separation of a child from
his parents.
- During
the past decade, much concern has been expressed regarding the quality of care
in residential facilities. In the late 1980s
and early 1990s, several reports
on poor living conditions and insufficient staff were published and received
wide attention. At
present, measures are being taken to improve this situation.
In addition, government and nongovernment agencies have begun to cooperate
on
the development of communitybased services that support families and enable
children to be safe and cared for at home. Nevertheless,
the overall number of
children placed in outofhome settings has not changed significantly in recent
years.
(b) Residential settings and boarding schools
- Table
14 presents data about the different types of residential setting and the number
of children attending each type. The majority
(431) of the settings, considered
part of the “regular education” system, are for children with
regular educational needs,
although some of the children who reside in them
attend special education frameworks. The “special education”
settings
include institutions for children with retardation, physical handicaps,
hearing and sight problems, and emotional problems. Some
(155) of the
facilities are only for youths ages 1418 and some (53) are only for
children under age 14, but most (283) accommodate
both children and youth. The
average number of residents in an institution for young children is 59, while
the average number of
residents in an institution for youth or for children and
youth is 147. Most residential facilities are operated by nonprofit
organizations,
while a limited number of facilities are private. Most of the
private facilities serve children with severe emotional problems.
Only a few
facilities for extremely troubled or delinquent youth are operated by the Youth
Protection Authority (a government agency;
see Chapter X).
Table 14
Number of residential settings and residents, by
residents’ age
and type of education 19961997*
|
Total
|
Regular education**
|
Special education
|
Total
|
491
|
(67 633)
|
431
|
(62 609)
|
60
|
(5 024)
|
Children under 14
|
53
|
|
53
|
(3 117)
|
|
Youth (1518)
|
155
|
(22 788)
|
148
|
(22 417)
|
7***
|
(371)
|
Children and youth (up to 18)
|
283
|
(41 728)
|
230
|
(37 075)
|
53
|
(4 653)
|
Source: BenArie and Zionit, 1997.
* The numbers in
parentheses refer to the total number of residents.
** No data are
available on an additional 40 religious institutions.
*** Children
under age 14 and youth up to age 18.
- The
residential care system, much like the education system, comprises Jewish and
Arab institutions. Within the Jewish sector, the
facilities are divided in the
same way as in the education system: State, State religious, and independent
religious frameworks.
4. Children under age 14 in residential settings
(a) Types of
residential setting
- Residential
settings for young children under age 14 are supervised by the Ministry of Labor
and Social Affairs. In recent years,
the settings have been classified and
budgeted according to the needs of their residents.
(a) Therapeutic settings: Approximatelyone quarter of the
children attend institutions defined as being therapeutic that is, for
children
with significant emotional or learning difficulties.
(b) Rehabilitative settings: Twothirds of the children attend
rehabilitative settings that is, for children with mild difficulties.
(c) Educational settings: Only 8% of the children attend settings
defined as being educational that is, for children with a normal
level of
functioning.
- Children
who reside in a therapeutic facility usually attend a special education school
on the premises, while children who reside
in a rehabilitative or educational
setting usually attend a public school in the community. In recent years, a
fourth model of residential
setting has been developed for children who have
been hospitalized in a psychiatric institution or who have severe emotional
problems.
(b) The purpose of placement, placement
procedures, and lengths of stay
- The
majority of children under age 14 who live in a residential setting are placed
there by the Ministry of Labor and Social Affairs,
through the decision
committee of their local social welfare department. These children often have
family problems, behavior problems,
and serious problems in school. These
settings offer an alternative to the family home, which meets the
children’s everyday
needs and protects them from the abuse and neglect to
which they were subjected in their home.
- A
1996 survey of 995 children under age 14 in residential settings showed that
most (76%) of them were referred to residential care
for more than one
reason (Dolev and Barnea, 1996). The reasons for referral were grouped into
four categories:
(a) Problems with parental care
(64%);
(b) Marital problems or violence between the parents
(60%);
(c) Behavioral or emotional problems of the child
(40%);
(d) Economic problems or antisocial functioning of the parents,
such as crime, drug abuse or mental illness (38%) (Dolev and Barnea,
1996).
- Most
placements are made with parental consent or compliance: A 1993 survey of nine
residential settings for children showed that
only 15% of the children were
placed in them under court order, while the remainder were placed in them at
their parents’ request
or with their consent. Interviews with some of the
parents indicated that they saw placement in a residential setting as being to
the benefit of their child. However, it is not clear to what extent
alternatives were offered or discussed with
them.
(c) Characteristics of children in residential settings
- The
study of nine residential settings also provided information about the
characteristics of the residents (see Table 15). As may
be expected when a
child is removed from his home by social services, large proportions of them
were neglected, a significant proportion
of them were abused, and many of them
had emotional, educational and behavioral problems.
Table 15
Major problems of children under age 14 in residential settings
(in %)
|
Percentage*
|
Parents’ problems
|
|
Physical abuse
|
25
|
Emotional abuse
|
25
|
Physical neglect
|
50
|
Children’s problems
|
|
Emotional problems**
|
33
|
Twoyear gap in school achievement
|
33
|
Over threeyear gap in school achievement
|
40
|
Source: Dolev and Barnea, 1996.
* The percentage of
children to whom this applies. The percentage does not total 100%, as
children may fit into several categories.
** In the clinical range, as
measured by the Child Behavior Check List (Achenbach, 1990).
- Children
referred to a residential facility usually remain away from home for several
years, often until they are 18. The children
in this study were 12 years old on
average, and had been in a residential setting for an average of two and a half
years.
(d) Maintaining contact with parents
- Several
studies have examined the steps taken to maintain and improve the relationship
between a child in a residential setting and
his parents. In 1991, a study was
conducted of how children in residential facilities maintain contact with their
parents (Laufer,
1991). The study found that in most residential facilities,
parental visits are not monitored, and there is usually no place where
children
can meet with their parents in private. A 1994 survey of 174 settings collected
information about the setting as a whole
through interviews with directors
(Bendel and Katz, 1994). In a 1996 study, data were collected on the individual
children in each
of nine residential settings (Dolev and Barnea, 1996). The
latter two studies revealed that the most common form of contact between
parents
and children was weekend and holiday visits to the family home roughly once
every three weeks. Although there is no uniform
government policy regarding
parental visits and activities, most residential settings hold joint activities
for parents and children
on their premises. The 1994 study revealed that 63%69%
of the settings allowed relatives to visit unannounced, 11%25% had a regular
visiting day, and 80% arranged transportation and accompanied the children home
(Bendel and Katz, 1994).
- At
the nine settings studied in 1996, the parents of half of the children
participated in joint activities at the facility, and the
parents of twothirds
of the children visited them (Dolev and Barnea, 1996). Comparison of the data
from the 1994 and 1996 studies
reveals that while many of the settings have some
sort of contact with the children’s parents, it is usually only with the
parents of a small proportion of the children. Nearly all of the directors
interviewed in the 1994 study reported that most or all
of the parents
received regular reports on their child’s progress from staff members; 42%
of the directors reported that some
of the parents receive counseling from the
facility staff (Bendel and Katz, 1994). Conversely, the 1996 survey of
individual children
revealed that only 4% of the parents met regularly with a
social worker at the setting, while an additional 14% met with a social
worker
approximately once a month. It also revealed that while the social workers
generally supported the children’s contact
with their families, those who
worked directly with the children were ambivalent toward the parents, and often
blamed them for the
children’s misfortune (Dolev and Barnea, 1996).
Moreover, the social workers often lacked the skills and training required
to
effectively relate to parents and other relatives; they felt burdened, and
tended to place responsibility for working with the
parents on the local social
welfare department.
(e) Recent developments in residential
care for children
- During
the late 1980s, public concern was expressed over the quality of care in
residential facilities and the effect of separating
children from their family
and community. In recent years, the government has accelerated the development
of several new residential
care models. For example, communitybased residential
settings and group homes have been established in collaboration with
nongovernment
organizations. These facilities are located in the child’s
own community and encourage his parents’ participation in
his daily life
and in decisions concerning him. In addition, family units are being developed,
in which a married couple lives with
and cares for a group of ten12 children.
Some of these units are part of larger residential settings, while others
function as separate
group homes in the community. Some residential facilities
offer afternoon “external programs”, which the children attend
during the day, returning to their family’s home at night.
5. Youth (ages 1418) in residential settings
- Approximately
55,000 youngsters ages 1518 live at a boarding school or residential facility.
They comprise 10% of the young people
in this age group. Usually they refer
themselves to a residential setting, often following the recommendation of
social services.
- Approximately
twothirds of the youth attending boarding schools are orthodox Jews a far
greater proportion than their proportion
in the general population. Moreover,
the popularity of boarding schools is on the rise in this subpopulation.
Another group amply
represented at boarding schools is that of new immigrants
from the former Soviet Union who arrived in Israel without their parents,
and
immigrants from Ethiopia who arrived in Israel in the late 1980s. It was hoped
that boarding schools would enhance their adjustment
to Israeli society.
However, this viewpoint has come under criticism, particularly within the
Ethiopian community, as many of the
boarding schools do not offer advanced
technological education, have a poor scholastic level, and generally enroll
students come
from disadvantaged backgrounds. In the wake of this criticism,
increasing numbers of Ethiopian youngsters are living at home and
attending
schools in their community. In a study of Ethiopian immigrant youth, Lifshitz,
Noam and Segal (1997) found that the reported
level of satisfaction with school
and the sense of belonging was similar for students at boarding schools and at
schools in the community.
They also found that young people living at a
residential facility received more scholastic and financial help than did young
people
living in the community.
- About
onequarter of the youth who attend boarding schools are neither orthodox Jews
nor recent immigrants. For many of them, the
residential setting offers a
solution to social, family or scholastic problems. However, there is limited
systematic data on the
characteristics of these youth, or the services offered
to them by the residential system, although voluntary organizations and policy
makers report that there are not enough placements for youth with serious
emotional problems.
6. Protecting the rights of children in outofhome
placements
(a) Laws protecting children in outofhome
placements
- The
Surveillance of Residential Facilities Law 1965 protects children in outofhome
placements. Section 2 of the law stipulates that
owning or operating a
residential facility requires obtaining a license from the Minister of Labor and
Social Affairs. Under section
6 of the law, a facility that operates without a
license or in a way not compatible with the law may be closed. According to
section
7 of the law, the government must appoint supervisors who are authorized
to enter and inspect a facility at any time in order to
make sure it is being
managed as stipulated by its license.
- The
Penal Law 1977 also protects children from abuse by staff or other minors in
residential facilities. Section 386A defines “a
person responsible for
the child” as being “whoever has the responsibility for the
essential needs, health, education
or wellbeing of the child” a
definition that includes the staff and administration of a residential setting.
Section 368D(C) of the law states that if a person responsible for a
minor has reasonable cause to suspect that another person responsible
for
the minor has committed a crime against the minor, he or she must report this as
soon as possible to a child protection officer
or to the police. The penalty
for failure to report is six months’ imprisonment. Section 368D(d)
obliges the director to
report any crime committed against a child in the
institution under his care. Failure to comply is punishable by six
months’
imprisonment.
(b) Protecting children’s rights
in residential facilities: supervision and regulations
- Three
agencies supervise residential facilities: The Service for Children and Youth
of the Ministry of Labor and Social Affairs supervises
all residential
facilities for children and youth. In practice, the Service emphasizes the
supervision of facilities for children
under age 14, the majority of whom were
placed in them by the Service. The Youth Protection Authority of the Ministry
of Labor and
Social Affairs is responsible for supervising correctional
facilities (see Chapter X). At present, the Ministry of Education
supervises
residential facilities for youth, and all schools within residential
facilities.
- The
Ministry of Labor and Social Affairs is developing standards and practices to
improve the quality of care in residential facilities,
including an advanced
surveillance system, which will enable inspectors to continually monitor each
facility according to uniform
standards.
(c) The actual
quality of care in residential facilities
- As
a basis for developing the new surveillance system, a national survey was
conducted in 1995 of all Youth Protection Authority facilities,
and of a sample
of residential facilities supervised by the Service for Children and Youth
(Fleishman et al., 1999). The survey
compared the directors’ perception
of the quality of care in these facilities, with the level of care required by
the regulations
then applicable and compliant with the recommendations of an
expert committee that was established to set standards of care in residential
facilities. The survey revealed the following:
− While most facilities met the requirements for the number of staff set
by Ministry regulations, many did not meet the higher
standards recommended by
the expert committee. Most of the directors stated that the majority of their
staff met the educational
requirements of the regulations. However, they
reported difficulty recruiting and keeping staff. These findings are supported
by
other studies (see Bar, 1995).
− Most facilities met or exceeded the regulation requirements for physical
conditions. However, over half of the facilities
did not meet the conditions
recommended by the expert committee regarding the number of bathrooms per
child.
− Approximately twothirds of the facilities met the regulation
requirements for routine medical and dental
checkups.
− The majority of the facilities met the expert committee’s
recommendations for monitoring the physical wellbeing and
hygiene of the
children
− Standards of educational, emotional and recreational intervention were
not included in the regulations, and are currently
being developed. The survey
indicated that most of the facilities provide a range of interventions and
activities. However, written
intervention plans, as recommended by the expert
committee, were available at only a small proportion of the facilities.
− Approximately onethird of the facilities reported that requiring
children to perform additional chores was used as a punishment,
and 8% of them
reported placing a child in seclusion or denying him visits home as a sanction.
Such sanctions are prohibited by
Ministry regulations. In most cases, the
regulations regarding response to theft, leaving the facility without
permission, and physical
violence were followed.
- Information
from this and other studies reveals that there is difficulty providing an
adequate education to children in residential
facilities. Dolev and Barnea
(1996) found that even though many of the children in therapeutic facilities
have extensive gaps in
their scholastic achievements, insufficient resources are
allocated to education in these facilities. Special education schools
in these
facilities are classified as “recognized but not formal”, and are
therefore financed at a lower level than are
similar schools in the community.
Furthermore, the time devoted to assistance with homework is
limited.
- Children
residing in rehabilitative facilities usually attend school in the community in
which the facility is located. School and
facility staff often report that the
children have trouble adjusting to school, and that there is a lack of
communication and coordination
between the school and the facility.
- Following
this survey, both the Youth Protection Authority and the Service for Children
and Youth developed a new surveillance system
for residential facilities.
Uniform standards were developed for all aspects of outofhome care, and
systematic measures were introduced
to monitor the extent to which the
residential facilities meet standards. Periodic supervision was instituted to
identify and correct
deficiencies. This system is based on a model first
developed for inspecting and improving old age homes. It assumes that measuring
and controlling quality of care must consider the children’s condition
(outcomes of care) as well as intervention methods and
physical resources
available to the facility. When a facility is inspected, its staff are required
to report on each child and “tracers”
that indicate the presence of
a problem (e.g., bedwetting, poor scholastic achievements, running away,
suicide attempts). At the
next inspection, a sample is made of children who
showed one or more “tracers”, and the facility is checked to see
whether
the appropriate steps have been taken to help the child, based on the
standards. In addition, facilities are inspected for general
measures such as
cleanliness, crowding, and staffchild ratio. Attention is also paid to the
number of extracurricular activities
and meetings with parents a facility
allows. A sample of children is interviewed about the quality of care
(e.g., the food, the
attitude of the staff toward them). During subsequent
inspections, the staff of the facility are presented with a report of areas
that
need improvement.
7. Periodic review of placement
- The
Youth (Care and Supervision) Law 1960 sets a threeyear limit on a court decision
regarding a minor in need, including a decision
to remove a child from his
parent’s custody. At the end of three years, the order may be
renewed.
- The
regulations of the Ministry of Labor and Social Affairs require that the
decision committee review a child’s treatment plan,
including outofhome
placement, every six months (Ministry of Labor and Social Affairs, Regulation
8.9, 1995). Though systematic
data are not available, it appears that this
regulation is not implemented uniformly.
- Usually,
a child’s situation and progress is reviewed twice a year at the facility
where he resides. In some cases the community
family social worker who is
responsible for the family attends the review. However, the plan and goals of
intervention are not usually
recorded, such that it is impossible to evaluate
the extent to which they are followed. Furthermore, the length of stay in an
outofhome
placement is often protracted; for most children, returning home is
not an alternative. A study of decision committees found that
when a child
already resides in an outofhome facility, committees usually recommended leaving
him there.
- In
recent years, policy makers and service providers have begun to examine ways of
shortening outofhome stays when possible. Alongside
efforts to improve the
efficiency of decision committees, the Ministry of Labor and Social Affairs and
ASHALIM are establishing community
residential facilities and foster clusters,
with the ultimate aim of reducing the length of stay at residential
institutions. Policy
makers are also considering a transition to daytime
residential frameworks and placing a child in a residential framework for only
a
few days a week while allowing him to spend the rest of the week at home.
Greater attention is also being paid to this issue in
the foster care system,
through foster care coordinators who have recently begun working in local social
welfare departments.
- As
noted, the Youth Protection Authority is responsible for managing correctional
facilities for juvenile offenders and youths with
severe behavior problems. The
Authority’s regulations require review of outofhome placement. The
youth’s situation
and progress is reviewed three months after admission
and at least every six months thereafter. Review committees include the child
protection officer or probation officer who referred the youth to the facility,
the youth himself, and his parents. Intervention
plans are generally recorded.
The Youth Protection Authority is introducing a more systematic, efficient means
of review, which
will entail reformulating the regulations that guide the review
process.
8. Nongovernment involvement with children in outofhome
care
- Yeladim
Council for the Child in Placement is a nongovernment organization established
in 1986 in response to problems with residential
care, such as children who
drift from one setting to another, insufficient training for staff, poor
physical conditions, and children
being placed far away from their families.
- The
council lobbies for the rights of children in residential care and raises funds
to improve their quality of life. It also offers
the children art activities,
educational materials and holiday gifts, in partnership with the business
sector. The council has lobbied
for the establishment of a national authority
for residential settings for children, official recognition and funding of the
schools
that operate in residential settings, and the passage of a law to
prevent the psychiatric hospitalization of children who are not
mentally ill.
The council also acts as legal guardian for children whose parents are incapable
of doing so, and operates an “ombudsman”
for children in placement.
The council has published several reports on the care of children in residential
settings.
G. Article 21 of the Convention Adoption
1. The Adoption of Children Law
- According
to the Adoption of Children Law 1981, adoption establishes the same rights and
duties between adoptive parents and their
adopted children as between natural
parents and their children, and gives the adoptive parents the same authority
that natural parents
have regarding their children. Adoption terminates the
rights, duties, and authority of natural parents toward their children (section
16), although the court may limit the above (section 16(1)).
- The
Adoption of Children Law states that a child can only be adopted through an
adoption order granted by a court at the request of
the adopting parent. Upon
this request, a child protection officer must present a detailed report of the
child’s condition
to the court (section 287 of the Civil Law Proceedings
1984). An adoption order will only be granted by a court if it is in the
child’s best interest (section 1 of the Adoption of Children Law 1981),
and only after the child has lived with the adoptive
parent(s) for at least six
months (section 6).
(a) Circumstances of adoption
- It
is presumed that “the child’s best interest [lies in his being] with
his natural parents. This presumption is not
only based in reality, but also in
values deriving from the natural parents’ basic rights” (Additional
Civil Appeal 7015/94
Attorney General v. Anonymous Defendant,
P.D. 50(1) 48, p. 67). However, in certain circumstances, this
presumption is invalid, in which case the court may declare the
child
“available for adoption”, even without his parents’ consent.
- According
to section 13 of the Adoption of Children Law 1981, a court may declare a child
available for adoption in the following
circumstances: (1) The birth parents
cannot be identified or located or cannot be asked about their wishes; (2) the
parent opposing
the adoption is the father, who never recognized the child as
his own or, if he did recognize him, the child nevertheless does not
live with
him and he refuses, for no reasonable cause, to take the child into his home;
(3) the parent has died, or been declared
incompetent, or his or her
guardianship of the child has been revoked; (4) the parent has deserted the
child and failed to maintain
contact with the child or to fulfill his or her
parental obligations for at least six months; (5) the parent has avoided, for no
good reason, fulfilling his or her basic obligations toward the child for six
consecutive months; (6) the child was kept outside the parent’s home
for six months prior to the child’s reaching six
years of age, and the
parent refused, with no justification, to take the child into his or her home;
(7) the parent is unable to
care for the child adequately because of his
behavior or condition, and it is unlikely that his condition will change in such
a way
as to enable him or her to care for the child, despite economic or social
assistance; (8) the biological parent’s refusal to
agree to the adoption
is based on an immoral reason or for an illegal purpose.
- With
regard to this section, the Supreme Court has noted:
“Section 13 ... lists the circumstances under which a parent is
considered as not fulfilling his or her obligations toward his
child. The
reasons for adoption reflect the balance, whereby ... preference is given to the
best interests of the child, as weighed
against the rights of the natural
parents. A parent is required to fulfill his obligations to his child to the
best of his ability,
and the law requires that the welfare services assist him.
However, a parent’s ability is measured objectively, based on the
child’s mental and corporal needs, which if not fulfilled, will cause him
harm ... A parent not fulfilling his obligations
toward his child, despite the
assistance of the welfare authorities, loses his parental right, even if his
failure is a result of
objective circumstances, as the purpose of adoption is
not to “punish” the parent, but to realize the superior right
of the
child” (op. cit. p. 67).
- In
certain cases, a child may be declared available for adoption even if the
circumstances listed in section 13 are not present:
“In general, when there is no circumstance for adoption, the principle
of the best interests of the child is fulfilled in the
assumption (which is also
anchored ... in the parent’s right) that the child’s best interest
is served by his being raised
by his parents. However, because the best
interests of the child takes precedence, even this assumption may be overturned
in exceptional
cases, if returning a child to his natural parents would cause
him great harm, even if he was taken from them illegally. In such
a case, a
child will not be returned to his natural parents, even if there was no valid
circumstance for adoption” (op. cit.
pp. 8687).
- According
to section 12(3) of the Adoption of Children Law 1981, if a case is urgent, a
child protection officer may deliver the child
to the intended adoptive parents
even without parental consent, and even before the child has been declared
available for adoption.
Such a step must be ratified by the court within 14
days.
(b) Consideration of the parents’ opinion
- In
the case of parental consent to adoption, the court must determine that the
parents indeed wish to relinquish the child (section
8). Parental consent is
invalid if given before the child was born, or under pressure. In special
circumstances, the court may
decide to allow the parents to change their
decision, as long as an adoption order has not yet been issued
(section 10).
- The
official who receives parental consent must explain its meaning to the parents
(section 273 of the Civil Law Proceedings 1984).
The court reviewing the
adoption order may choose to appoint an attorney to represent the parent, at the
State’s expense (section
24 of the Adoption of Children Law 1981).
(c) Consideration of the child’s opinion
- Section
9 of the Adoption of Children Law states:
“If a child is nine years old, or if he or she is not yet nine years
old but is capable of understanding the issue, the court
must establish that the
child wishes to be adopted by the adoptive parent(s) before issuing an adoption
order. However, the court
may give an adoption order without notifying the
child and without his consent if it is convinced of the following:
(1) The child does not know that the adoptive parents are not his or her
natural parents;
(2) All signs indicate that the child wishes to continue his relationship
with the adoptive parents;
(3) The child’s best interest requires that he not be told of the
adoption.”
- The
law does not require that a child’s opinion be heard before he is declared
available for adoption, but only before a final
adoption order is issued.
- The
Supreme Court has ruled, in the case of a fouryearold child who expressed his
wishes to psychologists when he was three years
old, that “perceiving the
child as a separate entity entails granting his right to have his wishes and
wants considered to
the extent possible” and that “this is not a
baby, but a child with a will of his own which he is capable of expressing,
indeed ... [a child of three or four] does not have the same powers of
consideration as an adult. Sometimes the wishes of a small
boy do not reflect
his best interests. However, a child is not an object to be handed from one
person to another without consideration
of his wishes. The child has an
opinion, which needs to be taken into consideration”. In practice, the
weight the court ascribes
a child’s opinion increases with
age.
(d) Competence of adoptive parents
- The
law specifies several conditions of competence to adopt: A child may only be
adopted by a married couple, or by the spouse of
the child’s parent, or by
an unmarried relative in case of the death of the natural parents (section 3).
The adopting parent
must be at least 18 years older than the child, except in
case of adoption by the parent’s spouse (section 4). The parent
must be
of the same religion as the child (section 5).
(e) Discretion in cases of adoption
- Section
34 of the Adoption of Children Law 1981 prohibits the disclosure of information
about the identity of the children, the birth
parent, and the adoptive parents.
Section 30(b) states that when the child reaches the age of 18, he may receive
information about
the adoption, based on the decision of the child protection
officer (see also Chapter VI).
- As
a rule, the identity of the adoptive parents is not revealed to the natural
parents. In exceptional cases, law and case law allow
for an “open
adoption”, whereby contact between the adopted children and their birth
parents is maintained.
2. Adoption in practice
(a) The Service
for the Child and the adoption process
- Adoptions
in Israel are handled or supervised by the Service for the Child, which is part
of the Ministry of Labor and Social Affairs.
This Service serves the following
populations:
(1) Children who are relinquished, or deemed by a court to be available for
adoption;
(2) Adults who wish to adopt, or who have adopted, children;
(3) Pregnant women who are considering giving up their child for
adoption;
(4) Adult adoptees, who wish to learn about their past.
- Infants
who are given up for adoption with their parents’ consent are usually
transferred to the adoptive family within a short
period, and an adoption order
is requested six months later. The more complicated cases are those in which
children are adopted
against their parents’ wishes, through the
intervention of the court. These children are usually older.
- As
noted above, Ministry of Labor regulations require welfare services to attempt
to rehabilitate the family, so as to allow the child
to stay with his family of
origin. The decision to proceed with an adoption is made by the social welfare
department decision committee.
Regulations require that a representative of the
adoption service attend any discussion concerning a child under age six, or any
case in which adoption is being considered. If the committee decides that,
despite attempts to help, the parents are incapable of
raising their child and
that it is in the child’s best interest to be adopted, the adoption
service will ask the legal department
of the Ministry of Labor and Social
Affairs to petition the court to declare the child available for adoption.
- According
to officials in the Service for the Child and in the Ministry of Labor’s
legal department, the courts are strict in
their demand that the State prove
that the biological parents are incapable of raising the child, even if helped
by the authorities.
Court decisions are based on
the testimony of the child’s parents, witnesses, social workers and
other professionals who have worked with the family. The
court also relies on
expert (psychological or psychiatric) evaluations. Often, other options will be
considered before freeing a
child for adoption, such as granting guardianship to
a member of the extended family, if such an arrangement is in the best interest
of the child. Once a court has determined that a child is available for
adoption, the birth parents can appeal to a higher court.
- The
1994 Report of the State Comptroller expressed concern about the duration of
legal proceedings, which was an average of between
12 and 18 months in 19891991.
Sources in the adoption service stated several causes for lengthy legal
proceedings: an overburdened
court system, long intervals between hearings
(despite regulations determining maximum intervals), and the insistence of
courts on
extensive examination of the evidence presented in favor of parents.
- During
legal proceedings, the child is usually under a court order that has deemed him
a “minor in need” and placed him
outside his home. The Service for
the Child and several nongovernment organizations operate special group homes
for children in
transition. Other children stay with a foster family or at a
residential setting. This period is used to prepare the child for
separation
from his family and adoption into a new family.
- It
is possible to place the child with parents who wish to adopt him if
circumstances so require, even before the child has been declared
available for
adoption. Data from a survey of children over two years old who were adopted
between 1985 and 1995 reveal that only
9% were placed with adoptive families at
this stage (JDCBrookdale Institute, unpublished data). It appears that this
option is often
successful when the child is an infant.
- Once
a child has been declared available for adoption, the regulations require that a
suitable family be found within 12 months.
When older children are involved,
several meetings take place between the child and the prospective parents, over
the course of one
or two weeks, before he begins to live with them. During this
time the child’s reaction is observed by professionals who know
him; if he
seems distressed by the interaction, a different family will be sought.
- As
a rule, the adoption order severs the legal ties between adopted children and
their biological parents. The children are usually
placed in a different
geographic area from that of their birth parents, in order to prevent
involvement. As noted, “open adoption”
is rare, although
consideration is being given to expanding this option.
- Once
a child has reached 18 years of age, the Service for the Child will contact his
biological parents if he is interested in meeting
them, and will and help set up
a meeting.
(b) Information about adopted children
- Information
about children adopted within Israel is presented in Table 16.
Table 16
Children adopted within Israel, 19951997 (in absolute
numbers)
|
|
1996
|
1997
|
Total
|
215
|
182
|
149
|
Infants (02)*
|
96
|
102
|
71
|
Children (2+)
|
119
|
80
|
78
|
Source: BenArie and Zionit, 1995.
* Including twofive
children with Down’s Syndrome per year.
- As
is apparent, about half of the children adopted within Israel are children over
two years old. This population presents a challenge
to the adoption service, as
most couples prefer to adopt an infant (the waiting period for adopting an
infant is five and a half
years). Recently, a study initiated by the Service
for the Child examined the outcomes of the adoption of older children and the
services needed during different stages of the adoption process. Preliminary
data from this study are available on 343 children
over two years of age who
were adopted between 1985 and 1995, as shown in Table 17.
Table 17
Characteristics of older children adopted between
1985 and 1995
|
|
Percent
|
Total
|
343
|
100
|
Age of children
|
|
|
2 3
|
92
|
27
|
4 5
|
92
|
27
|
6 and over
|
156
|
46
|
Siblings
|
|
|
Adopted with siblings
|
119
|
35
|
Adopted alone
|
224
|
65
|
Adoptive parents
|
|
|
Have other children
|
183
|
54
|
Do not have children
|
160
|
46
|
Source: Rivkin et al., forthcoming.
3. Intercountry adoption
- In
1997, approximately 190 children were adopted from other countries. In 1996 the
Adoption of Children Law 1981 was amended to regulate
intercountry adoption.
This amendment subjects intercountry adoption to the Hague Convention on the
Protection of Children and Cooperation
in Respect to Intercountry Adoption,
which Israel signed in 1995.
Section 28 of the law determines that the central authority for all
intercountry adoptions by the law and in accordance with the Convention
is the
chief child protection officer, who is appointed by the Ministry of Labor and
Social Affairs. Intercountry adoption will
be administered, as a rule, by
nongovernment agencies authorized by the Minister of Labor and Social Affairs
and the Minister of
Justice (section 28c). Each agency is responsible for
verifying that the authorities of the country of origin have examined the
possibilities for adopting the child within that country and have determined
that intercountry adoption is in the child’s best
interest. The agency
must also verify that due process has been carried out regarding the
child’s availability for adoption.
When the child’s age and level
of understanding render it necessary, the agency is responsible for verifying
that the child
understands the adoption and has consented to it. The law
requires that each agency verify the eligibility of the prospective adoptive
parents to adopt a child according to the standards set for intercountry
adoption (sections 28H28J). Under regulations of the Service
for the Child, the
adoptive parents or parent must have reasonable health and economic stability,
and at least one parent must be
under 48 years of age. The adoption agencies
are responsible for monitoring the child’s adjustment to the home, and
must submit
a report to the country of origin. As in internal adoption,
intercountry adoption must be finalized by a court order, once the court
has
verified that all conditions required by law have been met.
- According
to section 28t(c), which was amended to the Adoption of Children Law
in 1997, a court may grant an intercountry adoption
order even if the
adoptive parents have a different religion than the adopted child, provided this
presents no infringement of the
child’s best interest.
- Adoption
of children born in Israel by people in other countries is extremely rare.
In 1996, five children were adopted outside of
Israel, and in 1997, six
children were adopted outside of Israel. These children were born to Moslem
mothers. As Islamic law does
not recognize adoption, and interreligious
adoption is prohibited within Israel, these children were placed with adoptive
families
outside of Israel. It is probable that in the future such children
will be placed with Moslem families in Israel for longterm fostering
and
guardianship, which will be similar to adoption and in accordance with Islamic
law.
4. Support services for adoptive families
- The
adoption agency provides counseling services at least until an adoption order
has been granted (usually six months after the child
begins living with the
family) or longer, at the family’s request. In special need adoptions
(children over two years old,
children with disabilities), more intense support
is provided. Adoptive parents of children with special needs undergo training
before receiving the child; in some cases, postadoption support groups are
offered.
- A
nongovernment agency, MALI The Center for Counseling and Treatment for Adoptive
Families, also offers professional help to adopted
children and families at
subsidized rates. In 1997 this service treated 344 individuals, through
individual, family and group therapy.
The service also offers workshops,
training and consultation for professionals who work with adopted
children.
H. Articles 19 and 39 of the Convention Abuse and
neglect,
recovery and reintegration
1. Legislation regarding child abuse and neglect
- Several
laws deal with the prevention and treatment of child abuse and neglect. (For
additional information on legislation regarding
sexual exploitation, see Chapter
X.)
(a) The Penal Law
- The
Penal Law 1977 prohibits acts of physical, emotional or sexual abuse directed at
minors, and sets a maximum sentence of seven
years for such offenses, and nine
years if the perpetrator is the child’s guardian (sections 368B, 368C).
As noted, the Penal
Law also prohibits neglect of a child, and sets penalties
for specific breaches of parental obligation, such as failing to provide
a child
under age 14 with food or clothing (section 362), or leaving a child under two
years of age without supervision (section
361).
- The
Penal Law was amended in 1989, introducing a new chapter, 6.1: Harm to Minors
and Dependents. The following principles underlie
the stipulations in this
chapter: First, crimes committed against a minor are more severe than those
committed against an adult.
Second, crimes are more severe when committed by a
person responsible for a minor, than when they are committed by a person not
responsible for the minor. Offenses committed by a relative are especially
serious. Third, these prohibitions also apply to emotional
abuse.
- Section
351 of the Penal Law 1977 addresses sex offenses committed within the family,
and sets more severe punishments than those
set for offenses committed by
someone who is not related to the victim. Thus for example, the penalty for
rape or sodomy of a minor
within one’s family is 20 years’
imprisonment, as opposed to 16 years’ imprisonment for the same crime
committed
against someone who is not a relative. Section 351b stipulates that
having sexual relations with a relative who is between the ages
of 14 and 21 is
punishable by 16 years’ imprisonment.
- Mandatory
reporting of child abuse was added to the Penal Law in the 1989 amendment.
Section 368D(a) requires an adult to report
any case of child abuse or neglect
to the police or to the Child Protection Authority. Failure to report such
abuse is a criminal
offense, which carries a threemonth jail sentence. The law
imposes a sentence of six months’ imprisonment on professionals
who fail
to report abuse of a minor, (e.g., physicians, nurses, educators, social
workers, policemen, psychologists, criminologists,
and school principals and
staff; section 368D(bc)). As noted, schools and other facilities for
children are obligated by this law
to report the incidence of severe injury,
abuse, and sexual offenses against a minor performed by caretakers or
noncaretakers, including
another minors (368D(d)).
- The
amendment that made reporting mandatory was the result of extensive lobbying by
voluntary and advocacy organizations, as well
as of the disclosure of several
cases of severe abuse and neglect, one of which culminated in the death of a
threeyearold girl who
had been continuously abused by her uncle, which shocked
the public. Teachers, friends and neighbors
had been aware of the continuous abuse, but had failed to report it to the
Child Protection Authority. The setting of longer sentences
for professionals
who fail to report suspected abuse was meant to resolve the dilemma of
professionals, such as physicians and therapists,
who may hear of abuse and yet
hesitate to report it lest they break their vow of maintaining confidentiality.
Despite the passage
of this law and the increase in the rate of reporting that
has resulted, the sanctions set down in the law are not actually enforced,
such
that practically no professionals have been brought to trial for failure to
report a suspicion of abuse or neglect.
- The
Penal Law was again amended in 1996 (Amendment 47), in response to the
recognition that it frequently takes incest victims many
years to file a
complaint. The amendment extends the tenyear statute of limitations in cases of
incest, so that the period of limitation
begins tolling not from the date of the
offense, but from the date on which the victim reaches the age of 18. Although
the wording
of this amendment leaves something to be desired, the Supreme Court
has interpreted it broadly and in keeping with the spirit of
the Convention
(Criminal Appeal 2213/00 Anonymous Plaintiff v. State of Israel,
P.D. 54(3) 180).
(b) Implementation of the Penal Law
- As
noted, the use of violence that may cause physical or emotional injury to
children is forbidden by law and is considered criminal,
whether committed by
the child’s parents or by others. However, the Supreme Court recently
ruled that there is a criminal
injunction against the corporal punishment of a
child, whether perpetrated by a parent or teacher. This ruling came in the wake
of recent rulings in a similar vein made by some lower courts, including Family
Courts. Thus, for example, a mother who had beaten
her children on their rear
end, slapped their faces, beaten one child with a vacuum cleaner and punched
another in the face, breaking
his tooth, was charged with abuse. The mother
claimed that she had punished her children to educate them, and denied the
charge
of abuse. The judge ruled that although these acts were not considered
“intentional cruelty”, they did constitute abuse,
as they involved
repeated and systematic acts of violence for the sake of discipline. The mother
was convicted under sections 368(C)
and 379 of the Penal Law. The ruling
referred to the stipulations of the Convention, to the psychological damage
caused by violence
toward children, and to the evidence given by behavioral
research that beating a child does not improve his behavior (Criminal Case
(Tel
AvivJaffa) 511/95 State of Israel v. Anonymous Defendant (not yet
published)).
- It
should be noted that a stipulation of the Civil Wrongs Ordinance [New Version],
which offered protection of parents and teachers
for corporal punishment
perpetrated to the “reasonable degree necessary”, was recently
abolished. (See also section
13.1 of Chapter VI.)
- Another
development is the recent increase in conviction rates and in the severity of
sentences in cases of incest. One Supreme Court
decision convicted a father of
raping his daughter, overturning an earlier acquittal based on the
father’s claim that the child
“was not in a situation that prevented
her from resisting me”. The conviction held that a child victim of incest
is
always presumed to be unable to object to the act. Review of court rulings
also reveals that the amendments introduced in 1989,
which stress the
seriousness of sex crimes committed within
the family, have had an effect. In recent years, courts have imposed heavy
punishments of 12, 15 and 16 years for such offenses.
However, criticism is
still being voiced about cases in which the courts have been more lenient toward
incest offenders.
(c) The Youth (Care and Supervision) Law
1960
- Section
2 of the Youth (Care and Supervision) Law 1960 defines seven situations in which
a child or youth may be declared by the court
as being a “minor in
need”:
− No one defined as a parent, including a stepparent, adoptive parent or
legal guardian, is responsible for the child;
− The adult responsible for the child is incapable of caring for the child
or neglects caring for him;
− The child has committed a criminal offense, but has not been
tried;
− The child was found loitering, panhandling, or
peddling;
− The child is subject to detrimental influences, or lives in a criminal
environment;
− The child was born with a chemical addiction;
− The child’s physical or emotional wellbeing has been or may be
impaired.
- Once
the court has declared a child to be a “minor in need”, it may
intervene, by doing any of the following:
− Issuing an order, to the child or his guardian, that the court deems
necessary to the care and supervision of the child and
to ensuring his physical
and emotional wellbeing;
− Appointing a “friend” to the child who will advise the
child’s guardian and determine his authority and
responsibility;
− Placing the child under the care of a child protection
officer;
− Ordering that the child be examined or treated in a psychiatric facility
as stipulated by law.
- In
addition, the Youth Law stipulates that if the court is convinced that the child
is a “minor in need” and that there
is no other way to ensure that
he receives the treatment and supervision he needs, it may decide to remove the
child from the custody
of his parent or guardian, and place him in the custody
of the welfare services, which will determine where the child will reside
(section 4). This decision is limited to a period of three years, though it may
be renewed (section 3). The law also provides for
emergency situations:
If a child protection
officer is convinced that a child is in danger, he is authorized to take all
steps necessary to prevent the danger including removing
the child from his
home to a safe place provided the child is not held for more than seven days
without the consent of the child’s
parent or guardian, or the approval of
the court (section 11A). Section 12 of the law states that the court must
approve the emergency
steps taken and render an interim decision on the matter
before hearing the child or his parents. This decision is valid for 30
days,
and may be renewed for up to three months (section 14).
- As
noted, the Youth Law was amended in 1995 as follows: “The court will not
make a decision under this law... unless the minor,
the person responsible for
him and the child protection officer have been allowed to make their claims and
offer suggestions”
(section 8). Section 9 of the law states, however,
that the court may avoid summoning the child if it is convinced that he cannot
understand the matter or that appearing before the court will endanger him. In
such a case, the court may admit as evidence the
testimony of a child heard and
recorded by a youth interrogator (section 9A). (See also Chapter
X.)
(d) Young Children at Risk (Eligibility for Day Care) Law
2000
- Under
the Young Children at Risk (Eligibility for Day Care) Law 2000, a committee of
the Ministry of Labor and Social Affairs is authorized
to determine that the
healthy development of a young child (infant or toddler) is at real risk, and
that therefore he should be placed
in a daycare center, so as to preclude his
being removed from his home. The law defines a young child as being at risk if
he is
abused, if his developmental needs are not being met, if one of his
parents is not functioning properly, if he is one of triplets,
quadruplets,
etc., if his family is in crisis following immigration, or if he is
developmentally delayed. The law, which is slated
to go into effect in May
2001, stipulates that young children at risk will be eligible to attend a
daycare center close to their
place of residence. However, the law has left it
to the Minister of Labor and Social Affairs to determine the amount of
parents’
copayments.
(e) The Prevention of Domestic Violence Law 1991
- The
Prevention of Domestic Violence Law 1991 is intended to protect people,
including children, from a relative who endangers those
living with him through
physical, sexual or emotional abuse.
- “Physical
abuse” was defined by the Supreme Court, in connection with the criminal
offense of abuse of a minor, as being
the “direct or indirect use of force
or physical means against the body of the victim in a manner and to an extent
that may
cause physical or emotional harm or both”. According to the
court, abuse typically involves “cruelty, instilling in
the victim
considerable fear and terror, degrading or humiliating the victim, or severe
risk of (physical and emotional) harm”.
- In
order to prevent such risk, the court may issue a protection/restraining order
against the offender, which prohibits him from entering
or even approaching the
home for a period of up to one year, from harassing children or other relatives,
and from carrying a weapon.
The
protection order may require the offender to undergo psychological treatment.
Any relative who is aware of sexual or physical abuse
that has been or may be
perpetrated, may petition the court for a protection order. An amendment to the
Penal Law (Amendment 56,
Minimum Punishment for Violent Offenses against Women
and Children), which was ratified by the Knesset in
July 2000, sets
punishment for an offense of severe violence committed against a relative at no
less than onethird of the maximum
punishment imposed for the offense. The
amendment is in keeping with the legislator’s trend to favor minimum
sentences, in
order to obligate the courts to raise the baseline of punishment
for offenses of this type.
(f) The Child Testimony Law 1955
- The
purpose of this law is to protect children under the age of 14 who have been
involved in a sex crime (as victims, witnesses, or
offenders), or who have been
abused by the person responsible for them. The law enables a youth interrogator
(usually a social worker)
to question the child and then testify in court on his
or her behalf, thereby protecting the child from traumatic situations which
could arise in court (see Chapter X).
2. The prevalence of abuse and neglect
- Like
other countries, Israel does not have one data base that contains full data on
the number of children “at risk”.
It is therefore difficult to
obtain accurate figures on children who suffer from abuse and neglect or who are
vulnerable to other
risk situations. The data on cases reported to the chief
child protection officer pursuant to the Youth (Care and Supervision)
Law
1960 or reported to the police concern only those children in the most
severe risk situations; it is almost certain that they do
not adequately
represent the actual extent of the phenomenon.
- Children
known to social welfare departments are a larger group. However, these
children come from families that were referred to
or sought help from their
local social welfare department, and while they are all exposed to some level of
risk, it is likely that
not all of them should be defined as being “at
risk”.
- As
indicated in Table 18, 14% of the children in Israel are known to local social
welfare departments. Half of them (51%, or 7% of
the total child population)
are thought to be in a situation of direct risk, and under the care of a social
welfare department due
to violence directed at them or between their parents,
deficient parenting, or behavioral, emotional, or adjustment problems. Another
25% of them (or 3.5% of the total population of children) live in families where
there are risk situations, such as a problematic
relationship between the
parents or problems with the parents’ social functioning (i.e. drug
addiction, criminal behavior).
The remaining 26% of the children known to
social welfare departments (an additional 3.4% of the total child population)
live in
families that are subject to environmental risk factors such as poverty,
unemployment and single parenting.
Table 18
Estimated children at risk known to social welfare
departments and
children at risk identified by universal services (in
%)
Estimated
children at risk
|
Percentage
|
Known to social welfare department
|
|
Total
|
14
|
Direct risk
|
7.1
|
Family risk
|
3.5
|
Environmental risk
|
3.4
|
Recipients of universal services (direct and family risk)*
|
|
Total
|
6.3
|
Not known to social welfare department
|
4.4
|
Overall estimate (direct and family risk)
|
15
|
Source: Dolev, BenRabi and Yoel, forthcoming.
* Based
on estimates.
- Another
basis for estimating the number of children at risk are surveys in which
professionals identify these children from the pool
of children who receive some
sort of universal social service, such as those provided in a clinic, school, or
preschool. For example,
surveys conducted nationally at all family health
centers, and at schools in two local authorities, revealed that 2.5% of children
newborn to age six and 6% of children age seven17 are “at risk”, yet
are not known to their local social welfare department.
All of these children
are in either a direct or a family risk situation. It is therefore estimated
that 15% of Israel’s children
that is, 320,000 children are in
direct or family risk.
- Table
19 presents the major characteristics of children and families at risk, gleaned
from several studies. The Table reveals the
following:
− Some population subgroups have an overrepresentation of children at
risk: singleparent families, large families, and families
where the head of the
household is unemployed.
− Children at risk and their families suffer from multiple problems.
Large percentages of these children have at lease one
dysfunctional parent
(e.g., who is mentally ill, a criminal, a prostitute, a drug addict, or an
alcoholic). Many of the children
suffer from neglect, and many are emotionally
disturbed or have significant educational gaps.
− Children at risk are a heterogeneous group. Some subgroups of
children at risk, such as those under the care of the chief
welfare officer
pursuant to the Youth (Care and Supervision) Law 1960 and children referred to
local decision committees, have a
great many needs, as reflected in the greater
number of them who suffer from multiple problems. Other subgroups, such as
children
known to social welfare departments, have fewer needs. Children
identified as being at risk from among those who receive universal
services have
the fewest problems.
Table 19
Characteristics of subgroups of children at risk
(in %)
|
Subgroups of children at risk
|
Under the Care of a Child Protection Officer
|
Known to a Social Welfare Department
|
Referred to a Decision Committee
|
Visit a Family Health Center
|
Live in a Residential Facility
|
Singleparent family
|
36
|
21
|
38
|
22
|
34
|
Large family (4+ children)
|
48
|
42
|
37
|
36
|
62
|
Dysfunctional parent(s)
|
52
|
12
|
46
|
39
|
51
|
Abuse
|
16
|
1
|
16
|
5
|
23
|
Neglect
|
50
|
26
|
31
|
45
|
49
|
Educational gaps
|
54
|
No data
|
56
|
Not relevant
|
71
|
Behavioral/ emotional problems
|
75
|
31
|
53
|
34
|
36
|
Source: Primak, 1998.
3. Services for children subjected to abuse and
neglect
- As
noted, the Social Services Law 1958 obligates the local authorities to develop
and provide the majority of the welfare services
for needy populations,
including services for children who are victims of abuse and neglect. National
policy is set by the Ministry
of Labor and Social Affairs, which supervises
local welfare services.
- The
past decade has seen significant development of services for children at risk,
in response to the increased number of children
identified as suffering from
abuse and neglect since reporting became mandatory in 1989. There are three
types of service: Those
that provide
immediate protection, those that offer treatment specifically related to
abuse and neglect, and those that provide general support.
As general support
services were described above (see section (d) of this chapter), the following
sections will address the first
two types of service.
(a) Child
protection services
- In
Israel, child protection is conceived of and implemented by the social welfare
system, reflecting a belief in social intervention,
rather than legal action.
This preference is expressed in both the legislation regarding child protection,
and the organizational
structure of the service system. Child protection
officers, employed by social welfare departments, are legally responsible for
implementing the stipulations of the Youth (Care and Supervision) Law 1960,
which views legal intervention as a last resort, after
all other means of
helping parents adequately care for their children have failed.
- Child
protection services are provided under the Social Services Law 1958. The
involvement with a family of a child protection officer
does not entitle that
family (children or parents) to specific services. Like other clients of the
welfare system, these children
and families are dependent on the priorities and
allocation policy of the Ministry of Labor and Social Affairs, as well as that
of
their local authority, to a certain extent. A legislative initiative
proposed by the Ministry of Labor and Social Affairs as part
of a national
program for children at risk would entitle children and families at risk,
including those subjected to abuse and neglect,
to a basket of services based on
their needs.
- Child
protection services are provided by child protection officers, who are
supervised by regional child protection officers; both
are in turn supervised by
the chief child protection officer pursuant to the Youth Law in the Service for
Children and Youth. Child
protection officers are social workers in social
welfare departments who have undergone specific training and have been appointed
by the Minister of Labor and Social Affairs.
- In
most local authorities, child protection officers are part of neighborhood teams
that also comprise family social workers, geriatric
social workers, and the
like. The child protection officers act as experts on children, and advise the
other professionals on the
team. Their role in relation to a child and his
family varies according to the policy of the local authority and the specific
case.
A child protection officer may remain “behind the scene” as a
consultant to the family social worker, may intervene
during a crisis in the
family, or may work in partnership with the family social worker. In some
cases, the child protection officer
will take responsibility for intervention
and become the case manager for a child and his family, instead of the family
social worker.
Sometimes intervention is carried out under court order, though
often it is not.
- Upon
receiving a report of a child in need, a child protection officer will
investigate the case and gather information with the help
of other social
workers in the social welfare department. If there is reason to suspect that a
criminal offense has been committed,
the child protection officer must report
this to the police. (Conversely, the police must also consult with a child
protection officer.)
However, if it is the child protection officer’s
professional opinion that reporting the incident to the police would harm
the
child, he may petition a committee
comprising representatives of the district attorney’s office, a senior
police officer, and a senior child protection officer
to refrain from reporting
the incident. This procedure is rarely used: In 1996, 59 such requests
were made to these committees,
and only 29 of them were granted.
- Once
the investigation is complete, intervention is begun either with or without a
court order.
- Intervention
under court order: Under the Youth (Care and Supervision) Law 1960, a court
order may be issued for a “minor in
need” if the child protection
officer is convinced that the minor is in immediate danger, or is in need of
urgent medical treatment.
The child protection officer may take whatever steps
he deems necessary to help the child, without the consent of the child’s
guardian, for no longer than one week without court approval. The minor must
not undergo a psychiatric examination unless so ordered
by a regional
psychiatrist.
- Once
the court has pronounced the child a “minor in need”, the child
protection officer may ask that the court take the
steps required to protect the
child. These usually include one of the following:
(1) Issuing a protection order, which places the child under the protection
of the child protection officer; though the child continues
to live at home, he
and his parents are enjoined to cooperate with the treatment plan authorized by
the court.
(2) Issuing a custody order, which removes the child from his parents’
home and places him in the care of the child protection
officer until an
appropriate outofhome framework can be found. The court may issue an interim
order that is valid for 30 days and
may be extended for up to three months, or
may hand down a final ruling, which is valid for up to three years.
- Intervention
without court order. Child protection officers often use the authority they are
granted by law without actually applying
legal procedures. They do so with the
knowledge that they can apply such procedures at any stage, if the parents fail
to cooperate.
Those responsible for the child protection officers in the
Ministry of Labor and Social Affairs services believe that the use of
a child
protection officer’s authority, even without a court order, can induce
change in families that are unwilling to admit
they have problems and need
help. Initially, parents find it easier to comply with a program that is
imposed upon them. Eventually
they experience the intervention of the child
protection officer as supportive and helpful. Once parents agree to a treatment
plan,
they are asked to sign a contract with the department of welfare services,
which describes the program and mutual expectations.
In nearly half of the
cases in which children were placed in the care of a child protection officer,
the intervention was defined
as being “in light of the law” that
is, without a court order.
- Children
and families may exit the child protection system in several ways, including the
gradual transfer of responsibility for the
case from the child protection
officer to a family social worker. Many (about 25%) of the cases reported to
child protection officers
never formally enter the child protection system, but
rather are immediately referred to a family social worker. In other cases,
a
family social worker resumes care or takes responsibility for the case after the
crisis situation has been handled.
- As
a result, identifying and describing the population of children and families in
the care of the child protection system is very
difficult. At any point in time
there are children in the care of child protection officers under court order,
or not under court
order; cases in which child protection officers act as
consultants or partners; and cases being investigated by child protection
officers. Despite the relatively flexible definition of “being in the
child protection system”, it is agreed that these
children are those who
are subject to the most extreme risks, and who require the most intensive
intervention. However, as these
children and families are entitled to the same
services as those available and accessible to all children and families, the
services
and support available to children who suffer from abuse and neglect
should be seen within the context of general support services
(see section (d)
above).
(b) Children in the care of child protection
officers
- The
Ministry of Labor and Social Affairs collects data regarding children referred
and reported to child protection officers through
a central information system.
However, the Ministry claims that the information being reported to the system
is incomplete, and
covers only between half and onethird of all children
referred or reported to the officers. Data gathered by the Ministry in 1997
show that 11,000 children were referred or reported to child protection officers
in that year. Approximately twothirds of these
children were already under the
care of a social welfare department at the time of referral. According to the
Ministry, about 50%
of the reported cases were verified. Often, the child and
his family remain in the care of a social welfare department, even if
the report
is not verified, or is only verified in part.
- Additional
information about children referred to child protection officers is available
from a survey of the National Council for
the Child. According to this survey,
in 1996, 18,605 children were referred to child protection officers. This
figure is higher
than that reported by the Ministry of Labor and Social Affairs
for 1996 (10,592), which is thought to represent about twothirds of
the children
who were referred to child protection officers in that year. This discrepancy
appears because some of the social welfare
departments submitted data to the
National Council for the Child, but not to the Ministry of Labor. Information
about the types
of abuse experienced by the children referred to child
protection officers is presented in Table 20; the information is culled from
reported cases, which may or may not have been substantiated.
Table 20
Children referred or reported to a child protection
officer in 1996,
by primary type of maltreatment
|
Number
|
Percentage
|
Total
|
21 503
|
100
|
Neglect
|
9 550
|
44.5
|
Physical abuse
|
6 903
|
32
|
Emotional abuse
|
3 513
|
16
|
Sexual abuse
|
1 537
|
7
|
Other or unknown
|
199
|
0.5
|
Source: BenArie and Zionit, 1997.
- Since
reporting became mandatory in 1989, the number of reports of child abuse or
neglect has risen significantly from approximately
4,000 in 1989 to over 18,000
in 1997. Even though, as noted, few individuals have been tried for failure to
report a case of suspected
abuse, the law seems to have had an impact on the
public. The data indicate a strong correlation between the social welfare and
the child protection systems: 63% of the children reported to child protection
officers were already known to the social welfare
system at the time of
referral, and onethird of them were referred by a social worker. The small
proportion of children who reported
themselves, or who were reported by friends
or neighbors, indicates that the legislation has influenced professionals to a
greater
extent than it has the general public.
- It
is also noteworthy that the percentage of Arab children (13%) among those
reported to child protection officers is much lower than
their proportion in the
general population of children (25%), despite there being no evidence that
abuse and neglect are any less
common among the Arab than among the Jewish
population. This may reflect reluctance to report cases of abuse and neglect
within
the Arab population.
- A
19921993 survey of children in the care of child protection officers in four
cities (Jerusalem, Tel Aviv, Haifa and Beer Sheva)
provides a deeper
understanding of who remains in the care of a child protection officer, after
the initial investigation. All of
the children were living at home at the time
of the survey.
Table 21
Characteristics of children in the care of child
protection officers
in four cities, 19921993
|
Percentage
|
Number
|
Total
|
167*
|
849
|
Singleparent families
|
36
|
306
|
Families with four or more children
|
42
|
356
|
Head of household unemployed
|
37
|
314
|
Parent has impaired functioning (due to substance abuse,
mental illness)
|
52
|
441
|
Source: Dolev and Rivkin, 1997 (unpublished).
* More
than one characteristic may apply.
- The
data reveal that children who remain in the care of a child protection officer
come from families in which any of a number of
problems may impair social
functioning and parenting. Approximately onethird of the children live in
singleparent families, compared
to 6% in the general population, and almost
half of them live in families with four or more children, compared to 17% in the
general
population. Thirtyseven percent of the children live in families in
which the head of the household is unemployed, and almost half
of them have at
least one parent who suffers from a severe problem that may impair his social
functioning (substance abuse and diagnosed
mental illness are the most
prevalent).
- In
contrast to the popular perception, most of the children in the care of a child
protection officer are not subjected to physical
or sexual abuse, either
suspected or substantiated; emotional abuse is more common (i.e. humiliation,
severe punishment, punishment
that is unrelated to the child’s behavior).
The percentage of cases of physical abuse that are substantiated increases with
the child’s age.
- Most
of the children in the care of a child protection officer are subjected to
various forms of neglect. Almost half of them are
physically neglected that
is, at least one of their basic daily needs is not being met on a regular basis.
An even larger proportion
of children lack adequate supervision, are often left
alone, and do not have a daily routine. The majority of the children suffer
from emotional neglect, and close to half of them suffer from educational
neglect that is, their parents do not make sure they attend
school
regularly and do their homework.
Table 22
Children in the care of a child protection officer,
by type of abuse and neglect*
and by age group (in %)
|
|
|
Total
|
03
|
46
|
711
|
1214
|
Total
|
849
|
170
|
207
|
330
|
141
|
Proven physical abuse
|
16
|
8
|
13
|
15
|
34
|
Suspected physical abuse
|
16
|
16
|
17
|
18
|
9
|
Proven sexual abuse
|
1
|
0
|
2
|
1
|
2
|
Suspected sexual abuse
|
12
|
2
|
9
|
16
|
17
|
Inappropriate discipline
|
66
|
48
|
67
|
68
|
79
|
Physical neglect
|
50
|
56
|
48
|
51
|
41
|
Inadequate supervision
|
74
|
67
|
75
|
78
|
74
|
Educational neglect
|
44
|
7
|
37
|
61
|
61
|
Emotional neglect
|
79
|
67
|
84
|
83
|
79
|
Source: Dolev and Rivkin, 1997 (unpublished).
* A child
may be subjected to more than one type of abuse or neglect.
- Table
23 presents the services provided to these children and their families. The
service most commonly provided to children in all
age groups is participation in
a group framework that to some extent substitutes for care that is usually
provided in the home.
For example, half of the children in the youngest age
group attend a day care framework that operates eight hours a day. Older
children
are enrolled in afterschool care. Considering the large proportion of
children who were reported as having problems with school
performance, few
children receive educational support or enrichment outside of assistance with
school work, which is provided in
some afterschool frameworks. A small but
significant proportion of the older children undergo individual or group
therapy.
Table 23
Services provided to children in the care of a
child protection officer, by age (in %)
|
Age
|
03
|
46
|
714
|
Total in numbers
|
170
|
207
|
471
|
Day care
|
52
|
|
|
Afterschool care
|
9
|
36
|
21
|
Enrichment and extracurricular programs
|
2
|
7
|
8
|
Big brother/sister
|
|
|
12
|
Tutor
|
|
|
5
|
Individual or group therapy
|
|
16
|
19
|
Source: Dolev and Rivkin, 1997 (unpublished).
- The
proportion of children whose families receive services geared for the entire
family is even smaller. The most common of such
services, provided to 59% of
the families, is counseling with a social worker or child protection officer.
However, these counseling
sessions tend to be few and far between (fewer than
two sessions per month, on average). Only a very small proportion of the
children
live in families that receive a concrete service that is meant to
support the routine operation of the household. For example, about
15% of the
families are assisted by a paraprofessional homecare worker. Specific
rehabilitative services for parents, such as drug
detoxification or vocational
rehabilitation, are even less common.
Table 24
Services provided to the families of children in
the care
of a child protection officer (in %) (N=849)
|
Percentage
|
Homecare worker
|
15
|
Sessions with a social worker or child protection officer
|
59
|
Family counseling
|
13
|
Psychotherapy
|
7
|
Drug detoxification
|
4
|
Group therapy
|
4
|
Psychiatric care
|
9
|
Legal aid
|
7
|
Vocational rehabilitation
|
2
|
Source: Dolev and Rivkin, 1997 (unpublished).
- It
is noteworthy that families with children in the child protection system were
not generally found to be participating in programs
that took a more
comprehensive approach to family intervention, such as Video Home Training, even
though such programs were available
in some local authorities. It is possible
that the expansion of some of these programs has made them available to more
families
in the child protection system.
- The
patterns of service provision to this population are similar to those described
in section (d) and indicate a marked preference
for services that are provided
directly to the child, preferably in a group framework outside the home.
Investment in services for
the family unit or for parents is limited.
- However,
the data do indicate that more extensive services are provided to children who
are in the care of a child protection officer
than to other children in the care
of a social welfare department. Nevertheless, extensive disparities between the
needs of the
children and their families and the services provided remain
evident.
- Another
issue of concern upon which social workers and other professionals agree is the
shortage of services for children who are
victims of abuse in the Arab
community, including emergency centers, foster families, child protection
officers and other trained
professionals, residential settings, hotlines and
support groups for parents.
(c) Emergency services
- At
times, it is necessary to provide immediate protection for children in an
emergency situation. There are various ways to do this,
including providing
shortterm shelter. “Shelter families” serve as an immediate foster
placement until a child’s
situation can be evaluated and a longerterm plan
devised. Emergency centers and child protection teams, which function in
hospitals,
also provide immediate, emergency placement when the need arises.
- Emergency
centers. Since 1993, a network of six emergency centers for children has been
operating in Israel. Five of these centers
serve the Jewish population, and one
serves the Arab population. (Two additional centers are planned for the
Jewish orthodox and
ultraorthodox subpopulations.) Emergency centers are
designed for shortterm residence of up to three months and serve three
purposes:
to provide shelter for children in need of immediate protection; to
provide shortterm crisis intervention; to evaluate the child
and his family so
as to design a comprehensive longterm treatment plan for them. Intervention and
planning are carried out in cooperation
with professionals in the family’s
community. A child is referred to a center by a child protection officer,
who remains involved
in treatment and acts as a case manager to ensure
continuity of care when the child leaves the center.
- Three
emergency centers were evaluated during their first three years of operation.
Selected data on the 205 children included in
the study are presented in Table
25. The data indicate that the most prevalent reasons for referral to an
emergency center were
abuse or neglect. Although the centers were designed as a
shortterm intervention, onethird of the
children remained in them for an extended time due to the lack of an
appropriate longerterm solution. The majority of the children
eventually
returned to their parents’ home. Followup data on children who reached
the age of 18 shows a clear decline in physical
and sexual abuse and physical
neglect. However, the prevalence of more complicated types of maltreatment,
such as emotional neglect
and abuse, did not decline dramatically, indicating
need for sustained intervention.
Table 25
Components of care at three emergency centers, 19931996
(N=205)
Component
of emergency care
|
Percentage
|
Reason for referral*
|
|
Physical, sexual, or emotional abuse (suspected or proven)
|
46
|
Severe neglect
|
41
|
Parent crisis
|
35
|
Length of Stay
|
|
One month or less
|
26
|
Twothree months
|
31
|
More than three months
|
32
|
Destination on departure
|
|
Parents’ home
|
56
|
Outofhome placement
|
38
|
Adoption
|
6
|
Treatment plan**
|
|
Outofhome placement
|
47
|
Services for children
|
33
|
Services for family
|
40
|
Source: Dolev et al., assessment of emergency centers for
children at risk, various reports, 19941997.
* There may be more
than one reason for referral per child.
** Each treatment plan may
contain more than one component.
- Hospital
Child Protection Teams. Hospitals also play an important role in child
protection. Special teams have been set up in the
emergency rooms of 26 general
hospitals. These teams are headed by a social worker, and also include a doctor
and a nurse. The
child protection teams instruct hospital staff in dealing with
cases of suspected abuse and neglect: how to recognize them, how
to conduct an
initial investigation of the circumstances of the child’s injury, and how
to report the case to a child protection
officer or the police. The members of
the team can recommend hospitalizing the child until the case has been clarified
and referred
to the care of a child protection officer.
- A
survey of 238 children referred to child protection teams in 23 general
hospitals showed a very low rate of referral: two children
for every thousand
children. This proportion is particularly low, given the estimates of
maltreatment in Israel. Close to half
of the children referred to the teams
were newborn to age three. A large percentage of the children lived in families
characterized
by socioeconomic stress factors: 15% were from singleparent
families, 37% were from large families, 18% were from families with
economic
problems, and 29% were from families with housing problems.
- About
half of the children arrived at the emergency room with burns, bruises or
wounds, and 35% reported a medical complaint. Seven
percent were suicide
attempts, and 8% were sexuallyrelated complaints. In onequarter of the cases,
the adult accompanying the child
reported that the injury was caused by
violence, 29% reported that it was caused by a home accident, and 16% cited a
medical cause.
The hospital child protection teams decided to report 82% of the
children to a child protection officer (Alter, 1995).
(d) Nongovernment services for children who are victims of
abuse and neglect
- Hotlines
for Children. Several organizations operate telephone hotlines for children
suffering from abuse or neglect. The following
data were supplied by these
hotlines:
− In 1996, the hotline of the ombudsman for children of the National
Council for the Child received 7,271 calls. This represented
a very significant
increase from 242 calls in 1990. Of the 7,271 callers, 1,423 children
reporting being in a risk situation (e.g.,
abuse or neglect). (See Chapter
III.)
− In 1994, rape crisis centers received 941 calls regarding children under
age 18.
− In 1997, the hotline of the voluntary organization ELI The Israel
Association for Child Protection received 4,209 calls.
These children reported
the following problems:
Emotional abuse 40%
Physical abuse 28%
Neglect 18%
Sexual abuse 14%
- About
onequarter of the calls were from children in need; the remainder were from
relatives, professionals, and friends.
- Meital
The Israeli Center for the Treatment of Child Sexual Abuse is a public nonprofit
organization that provides professional treatment
to children and adolescents
who are victims of sexual abuse and their families. It also treats adults who
were sexually abused during
their childhood. In 1997, the organization provided
treatment to 264 children under the age of 14, and to 94 adolescents (ages
1518).
Most (65%) of the clients were referred by the social services.
The organization is sponsored by various foundations, and receives minimal
support from the government. It faces extremely severe
financial difficulties,
as most treatment is provided without charge, or for a token fee.
- ELI
The Israel Association for Child Protection, founded in 1979, is a nonprofit
organization dedicated to preventing and treating
child abuse and neglect. It
offers the following services:
− A tollfree hotline, staffed by trained volunteers 14 hours a day (see
above);
− Therapy services for children who are victims of abuse and their
families. In recent years, ELI has made this service available
throughout the
country, with special attention to Arab children, children from immigrant
families and children on kibbutzim;
− An emergency center for children.
4. Awareness and prevention of abuse and neglect of
children
- Many
(government and non government) agencies and organizations promote awareness of
child abuse and neglect. For some of these organizations,
education about
maltreatment of children is a primary activity. Other organizations deal with
this issue as one of a range of activities.
At present, there is no systematic
information on the scope of such activities or their effectiveness.
(a) Government activities
- The
Ministry of Labor and Social Affairs. When reporting became mandatory in 1989,
child protection services invested a great deal
of effort into promoting
awareness of and enhancing sensitivity to the signs of child neglect and abuse,
through workshops, lectures
and media appearances geared for both professionals
and laymen. During the past year, the Ministry has made services for
abused
and neglected children its priority, and has generated public support for
this. The Ministry also issued detailed instructions for
reporting neglect
and abuse.
- The
Ministry of Education. In the wake of mandatory reporting, the Ministry of
Education disseminated revised regulations in 1993
and in 1997, which were
required reading for principals and teachers. The regulations explained child
abuse and children’s
reactions to it, described how to recognize signs of
abuse, clarified the situations of physical, emotional and sexual abuse and
neglect that must be reported, and instructed school staff how to act if they
suspect a child has been subject to abuse or neglect.
First, they must report
their suspicion to a child protection officer or the police. Next, they must
notify the principal and the
school psychologist, guidance counselor or social
worker. School staff then meet with the child
protection officer to exchange information and determine an appropriate
course of action for the school. School staff are instructed
to refrain from
questioning the child. If the abuse is suspected to have occurred within the
child’s family, teachers are
instructed not to contact the
child so as
not to endanger him. The principal is responsible for maintaining contact with
the child protection officer and implementing
the treatment plan. Additional
regulations concerning the detection and reporting of sexual abuse, which were
meant to increase
the awareness and sensitivity of school staff, were issued in
1999.
- The
Psychological Service of the Ministry of Education operates a Unit for the
Prevention of Child Abuse. The unit comprises 18 counselors
who work throughout
the country; it also runs training workshops of between three and 56 hours for
teachers and guidance counselors,
which cover recognizing abuse and neglect,
approaching injured children, and reporting suspected abuse to the appropriate
authorities.
The workshops also teach educators to use preventive programs in
the classroom. The director of the unit estimated that most of
the school
guidance counselors in Israel have participated in such a
workshop.
- The
Psychological Service of the Ministry of Education has developed 11 such
prevention programs for use in the classroom, adapted
for children of different
ages, from kindergarten through 12th grade. For example, a program for children
in the first and second
grades, called “Learning to Protect
Ourselves”, encourages children to protect themselves from adult
harassment. A program
for children in third and fourth grades addresses
protection in the context of children’s rights: assertiveness,
recognizing
one’s feelings, and dealing with uncomfortable situations,
such as an uncle who forces a girl to kiss him on the lips. The
program teaches
children which secrets should not be kept, how to recognize adults who can be
helpful, and how to contact help hotlines.
The director of the Unit for the
Prevention of Child Abuse reported that these programs are not often used: To
her knowledge, the
prevention programs were used in only 400 of the nearly
37,000 elementary classrooms in Israel during the 1996/1997 school year.
The
prevention unit is now trying a new approach to disseminating abuse prevention
programs in the apparently less threatening context
of “life
skills”, alongside issues such as communication, friendship, violence, and
drug abuse.
- The
Ministry of Health. In response to mandatory reporting, in 1990 the Ministry of
Health published regulations regarding the obligation
of health workers to
report any suspected abuse or neglect of minors to a child protection officer
and/or the police, and to submit
a report to the Ministry’s Central
Committee on Family Violence, Abuse and Neglect of Minors and the Helpless.
These regulations
were circulated a second time in 1996.
- The
Police Force. The Police Force is also an important component of the system to
identify and prevent abuse and neglect. Representatives
of the Police Force
serve on relevant national committees and, in cooperation with the Ministry of
Education and the Ministry of
Labor and Social Affairs, give presentations in
schools.
- The
Prime Minister’s Office. Recently, the Prime Minister’s Office has
initiated an extensive media campaign to increase
awareness of and
prevent all forms of family violence.
(b) Nongovernment organizations
- ELI
The Israel Association for Child Protection operates educational programs that
increase awareness of and disseminate information
about child abuse. Some of
these programs are geared for children and adolescents, in an effort to
encourage them to seek help if
they or other children are subject to abuse.
Other programs educate and train professionals. Special programs have been
designed
for immigrant families, in an attempt to introduce to them unfamiliar
approaches to violence against children, including the use
of therapy to resolve
family problems and crises. ELI also operates a “Child Protection Data
Bank” that collects and
disseminates information about child abuse and its
treatment. ELI also lobbies for legislation and social policy that would
prevent
child abuse and provide rehabilitative services.
- Through
lectures and seminars, the National Council for the Child educates and raises
awareness about child abuse as part of its activities
for children’s
rights. For example, the council held a oneday conference on nonviolent
education, and published the lectures
presented. The council also circulates a
booklet in Hebrew and Arabic entitled “Education without Violence A Guide
for Parents”.
The council operates a “children’s
rights” minivan that travels among schools to raise awareness and
encourage
reporting among children.
- Women’s
organizations such as NA’AMAT, WIZO, and Emuna actively combat family
violence and offer support services to women
and children who are victims of
violence.
- Meital,
the Israeli Center for Treatment of Child Sexual Abuse works to increase public
awareness of sexual abuse and its effects
through lectures and presentations in
the media (e.g., in children’s magazines and television programs).
In 1997, the organization
provided training and consultation for professionals
in social service and voluntary agencies, the education system, and on the
police
force, including those who work with specific populations
(e.g., Arabs, Ultraorthodox Jews, immigrants from the former Soviet Union).
- In
addition, some radio and television channels show programs about child victims
of abuse and how they may seek help. During the
slot of television time
reserved for children, information is presented about hotlines, whose telephone
numbers are presented through
catchy “jingles”. Issues of child
abuse, particularly sensational cases, receive much attention in the electronic
and
print media.
VIII. BASIC HEALTH AND WELFARE
A. Article 23 of the Convention Children with
disabilities
- In
this section we will describe the legislation and policy that aim to ensure the
right of children with disabilities and their families
to special services, and
the extent to which, in so doing, they fulfill the stipulations of the
Convention. It should be noted that,
apart from specific rulings or policy
regarding children with disabilities, these children and their families are
eligible for the
same services as children without disabilities. Therefore,
this section will concern itself with those policies and services that
are
geared for disabled children and their families, and those areas in which the
capabilities of the children and their families
prevent them from participating
in or enjoying the rights granted all children.
- The
past two decades have brought a relatively large number of changes in
legislation concerning children with disabilities. These
changes testify to an
increasing recognition of the special needs of disabled children and their
families, and to the State’s
obligation to meet these needs. This section
begins with a description of court rulings and legislative initiatives
concerning children
with disabilities. It then presents data on the number of
children in Israel who suffer from disabilities, and on differences in
disability rates among population subgroups. Then the system of services for
disabled children and their families is described,
with emphasis on the way
these enable disabled children to realize their right to live full lives and
become selfreliant. The section
then describes the identification and diagnosis
of disability, and the provision of developmental and paraprofessional
treatment.
Lastly, it discusses the opportunities for disabled children to
participate in community life and recreational activities.
1. Legislation
- In
1980, Israel’s National Insurance Law 1953 was amended to grant disabled
child benefits to children with disabilities who
had been deemed eligible for
them by a medical committee. The amendment, which was enacted in 1981, covered
minors up to age 18
and was provided to families that cared for a disabled
child, to help them bear the burden of personal and nursing care designed
to
improve the child’s functional ability. In addition, disabled children
who attend school are eligible for a monthly stipend,
which pays for additional
scholastic assistance. Benefit levels are determined by the child’s level
of functional dependence
on his parents, whether he suffers from illnesses or
certain syndromes, his age and his school attendance. Prior to 1991, children
became eligible for benefits only at age three; in 1991, eligibility was
extended to begin at birth. The benefit level was dependent
on a means test
until July 1995, when this condition was abolished.
- Although
disabled children were always eligible for free compulsory education according
to their needs under the Compulsory Education
Law, the Special Education Law
passed in 1988 mandated and regulated the right of the “exceptional
child” to special
education according to his needs and level of
development (see Chapter IX). To this end, the law states that a child must be
provided
with the assistance due him under law in the “least restrictive
framework”; this constitutes a declaration of a policy
of integrating
children with disabilities into regular frameworks to the extent possible also
known as “mainstreaming”.
- The
National Health Insurance Law 1994 regulates the eligibility of disabled
children for medical and developmental care. The law
established uniformity
among children insured by the country’s sick funds, and set uniform
minimum levels of care for all children.
According to this law, children up to
six years of age are eligible for diagnosis and care by an interdisciplinary
team that comprises
a pediatric neurologist, a psychologist, a physiotherapist,
a social worker, communications clinician, and an occupational therapist.
These
children are also eligible for speech diagnosis and therapy, and for
multiprofessional care for learning disorders, minor
cerebral dysfunction,
language and speech impediments, communication disorders, and motor dysfunction.
Medical diagnosis and care
for physical disabilities are also provided by a
multiprofessional team regardless of the child’s age.
- The
recently enacted Rehabilitative Daycare Centers Law 2000 is designed to ensure a
proper care, rehabilitation and educational framework
for children ages onethree
with mental retardation or other disabilities. Such children are eligible for
care and education based
on a basket of services determined by the Minister of
Labor and Social Affairs and the Minister of Health in consultation with the
Minister of Finance and the Knesset labor and welfare committee. The cost of
the basket is borne by the national government, the
sick funds, and the
children’s parents. Care is to be provided at the rehabilitative day care
center nearest the child’s
home. Professional and paraprofessional
caregivers set an individual care program for each disabled child, in
consultation with
a center for child development authorized by the Minister of
Health, and based on the basket of services.
- The
Equal Rights for People with Disabilities Law 1998 defines a disabled person as
one who has a permanent or temporary physical,
emotional or mental (including
cognitive) disability that severely limits his functioning in at least one
primary activity of daily
living (ADL). Under the law, the rights of persons
with disabilities, and Israeli society’s obligation to secure these
rights,
are based on the principal of equality, on the recognition that man was
created in God’s image, and on the principal of respect
for one’s
fellow man. The goal of the law is to preserve the dignity and freedom of the
disabled person; anchor in law his
right to equal, active participation in
society; and meet his special needs while enabling him to live with a maximum of
independence
and dignity and to fulfill his potential. A disabled person should
be enabled to make decisions that affect his life based on his
own wishes and
priorities. In particular, the law addresses the rights of disabled people
concerning employment and access to public
transportation, and calls for the
establishment of a commission that will ensure equal rights for people with
disabilities. The
sections of the law concerning employment rights for the
disabled also cover parents and relatives who care for a disabled person.
Most
of the law’s sections specifically avoid dealing with
children.
- The
law is based on the recommendations of the public commission to examine
comprehensive legislation on the rights of disabled persons
in Israel, which was
established after the Knesset passed the Equal Rights for People with
Disabilities bill in 1996. The commission
examined the bill, as well as all
other legislation concerning disabled persons in Israel. The law represents
only some of the legislation
recommended by the commission, which continues to
work to enact additional legislation. However, a major limitation of the law is
that it does not ensure that funds will be budgeted for its implementation, but
rather leaves this to the discretion of the Minister
of Labor and Social Affairs
and the Minister of Finance.
2. Rates of disability and handicap among children in Israel
- Existing
information in Israel on children suffering from disabilities is incomplete.
The government ministries and agencies that
serve children with disabilities
possess some information on this population, yet the extent to which it
encompasses all children
with disabilities is unclear.
- The
National Insurance Institute (social security administration) and the
JDCBrookdale Institute conducted a national study, the first
of its kind in
Israel, to estimate the number of children and youth (up to age 18) with special
needs, to examine these needs, and
to determine the gaps between needs and
services (Naon, Ifrah and BaichMoray, 1998). “Children with special
needs” were
defined as children with disabilities or chronic illnesses who
require constant care or medical supervision, including children who
suffer from
deafness, paralysis, cancer, kidney disease, mental retardation or severe
learning disabilities or behavior disorders.
These children have special
medical, paramedical and educational needs in excess of those of their
peers.
- The
study revealed that about 177,000 children, or approximately 8.5% of the
children in Israel, suffer from a functional disability
or chronic illness that
requires constant care or medical supervision. This estimate does not include
the many children who have
slight learning disabilities or behavioral disorders,
or problems that have not been diagnosed.
- The
study also revealed the following:
− About 145,000 of the children had severe learning disabilities and/or
behavioralemotional disorders, or were suffering from
borderline retardation.
− About 48,000 children suffer from illnesses that require constant
medical or paramedical care.
− About 23,000 suffer from a severe physical disability.
− About 65,000 children (3.1% of all children in Israel) suffer from more
than one type of disability, as certain types of
disability are accompanied by
educational, behavioral or emotional problems.
- Significant
differences were found among various population subgroups in rates of disability
among children. The following were the
most noteworthy:
− The rate of boys with special needs was almost twice as high as that of
girls: 9.8% versus 5.4%, respectively.
− The rate of children with special needs was especially high in towns
with low socioeconomic ratings: 11.0% of all children
in such towns, compared
to 7.7% of all children in Israel.
− The rate of children with disabilities was especially high among
elementary school children, as disabilities are often identified
and diagnosed
when children enter the education system: 10.7% of elementary school children
had special needs, compared to 5.2%
of children newborn to age
five.
Table 26
Rates of disability among children living in the community in
Israel,
by type of disability (in %)*
Type of disability
|
Percentage
of all children
|
Percentage of children with disabilities
|
Total
|
8.7
|
100
|
Personal Care (ADL)
|
1.1
|
13
|
Motor control and mobility
|
2.5
|
29
|
Communication
|
3.1
|
36
|
Hearing
|
0.7
|
8
|
Vision
|
0.6
|
7
|
Speech
|
2.1
|
24
|
Behavior
|
5.6
|
64
|
Learning disabilities
|
4.8
|
55
|
Behavioral disabilities
|
1.9
|
22
|
Emotional disabilities
|
0.5
|
6
|
Mental retardation
|
0.4
|
5
|
Source: Naon, Ifrah and BaichMoray, 1998.
* The
percentages do not add up to 100% , as some children suffer from more than one
type of disability.
- Table
26 shows the rates of children suffering from various disabilities, according to
the survey. (As some of the children suffer
from more than one disability, the
data do not add up to 100%.) As can be seen, more than half of the
children identified in the
survey as being disabled (5.6% of all children) had
behavioral problems; they included children with diagnosed and nondiagnosed
learning
disabilities, and those broadly defined as having “behavior
problems”. About onethird of the disabled children (3.1%
of all children)
were diagnosed with communication problems; most suffered from speech
impairment, while others were deaf or blind.
About twothirds of the children
defined as being disabled (5.7% of all children) suffered from one disability,
while the remaining
onethird suffered from two or more
disabilities.
- Table
27 shows the rates of children suffering from various disabilities according to
sector and age (as some children suffer from
more than one type of disability,
the percentages in the Table do not total 100%). As can be seen, a comparison
of the Jewish and
Arab sectors reveals variance for specific disabilities. For
example, the rates of disability in ADL, motor disorders, emotional
disability,
mental retardation and blindness were higher in the Arab sector than in the
Jewish sector in some cases, two and even
three times as high. These
differences can be attributed to the socioeconomic and health conditions of this
population, as well
as to the relatively large percentage of intrafamily
marriages in the Arab sector. Conversely, the rates of learning, behavior and
speech disabilities were higher in the Jewish sector. There may be a
number of reasons for this. First, awareness of the need to identify and
diagnose disability, even if it is “less severe”,
is not as great in
the Arab as in the Jewish sector. Second, professionals report a severe lack of
diagnostic services in the Arab
sector, particularly for disabilities of
this type.
Table 27
Disabilities among children living in the community in the
Jewish
and Arab sectors, by type of disability and age (in %)*
|
Jewish sector
|
|
Age
|
Age
|
05
|
611
|
1217
|
05
|
611
|
1217
|
All children with disabilities
|
4.9
|
11.8
|
9.5
|
4.0
|
9.2
|
12.2
|
Personal Care (ADL)
|
0.0
|
1.3
|
0.5
|
0.6
|
1.4
|
3.4
|
Motor control and mobility
|
1.7
|
2.8
|
2.6
|
2.0
|
2.4
|
4.3
|
Communication
|
|
|
|
|
|
|
Hearing
|
0.6
|
1.0
|
0.6
|
0.5
|
0.7
|
0.6
|
Vision
|
0.3
|
0.5
|
0.6
|
|
2.0
|
1.3
|
Speech
|
2.6
|
2.8
|
1.4
|
1.9
|
0.9
|
1.9
|
Behavior
|
|
|
|
|
|
|
Learning disabilities
|
1.2
|
7.8
|
5.6
|
0.2
|
5.3
|
7.6
|
Behavioral disabilities
|
0.8
|
3.0
|
2.2
|
0.7
|
0.9
|
3.2
|
Emotional Disabilities
|
0.2
|
0.4
|
0.6
|
0.2
|
0.5
|
2.3
|
Mental Retardation
|
0.3
|
0.4
|
0.2
|
0.1
|
0.8
|
1.9
|
Source: Naon, Ifrah and BaichMoray, 1998.
* The
percentages do not add up to 100% , as some children suffer from more than one
type of disability.
3. The service system for disabled children in Israel
- In
Israel, services for children with disabilities are provided primarily by the
Ministry of Health, the Ministry of Labor and Social
Affairs, and the Ministry
of Education. The National Insurance Institute also plays a role in the care of
these children.
- In
addition, many voluntary and parents’ organizations play a central role in
providing services to disabled children and their
families, mobilizing
resources, raising awareness, and advocacy. In fact, voluntary organizations
that work on behalf of disabled
persons in general, and disabled children in
particular, play a pivotal role. Among the main organizations active on behalf
of disabled
children are the ALYN Hospital Pediatric and Adolescent
Rehabilitation Center devoted to children with cerebral palsy; ILAN, devoted
to
children and adults with physical disabilities; MICHA The Society for Deaf
Children and SHEMA, devoted to
hearingimpaired children; and AKIM, devoted to children with mental
retardation. The majority of the services operated by these organizations
are
governmentfinanced. These organizations often operate services for disabled
children by using funds received from national and
local government
authorities.
- The
services available to children with disabilities, and the organizations that
provide them, will be described in greater detail
in a later
section.
(a) The health system
- Health
services play an important role in identifying, diagnosing and providing care to
disabled children and their families. These
include family health centers,
centers for child development, the system of mental health services, and
hospitals.
- Family
health centers provide preventive health services to pregnant women and children
newborn to age five. Centers are located
throughout the country, operate on a
neighborhood or community basis, and employ a holistic approach. Most of the
nurses work with
families from pregnancy through a child’s early
development. Families perceive the centers, which cover almost the entire
population, as a source for support: It is estimated that 95% of all families
with young children visit a family health center from
pregnancy through the
child’s first two years of life. Use of these centers declines after
a child has reached two and a half
years of age.
- As
part of their mandate to monitor pregnancies and early childhood development,
family health centers conduct examinations at predefined
intervals, according to
a uniform protocol. Consequently, they serve as a primary agent for identifying
children with disabilities:
They alert parents to possible problems, instruct
parents how to encourage their child’s development and, when problems are
identified, conduct followup examinations and refer children for further
diagnosis and care.
- In
fact, the agencies responsible for diagnosis and care of young children with
disabilities (such as child development centers) report
that family health
centers are a primary source of referral to them. In a 1999 study of a
representative sample of 16 directors
of child development centers, ten
directors reported that children were most often referred by a family health
center (Naon, SandlerLoeff
and Strosberg, 2000).
- When
developmental problems are suspected, or when they are discovered by a primary
care physician or nurse at a family health center,
the child is usually referred
to a center for child development. There are 29 such centers in Israel: 11 of
them are operated by
the Ministry of Health, nine by Clalit Health Services
(Israel’s largest sick fund), five by the Maccabi Sick Fund, two by
the
Meuhedet Sick Fund, one by the kibbutz movement, and one by the Sisters of Mercy
in Nazareth. Most of those operated by the
Ministry of Health are located in
hospitals; those operated by the Maccabi and Meuhedet Sick Funds are located in
the community;
and those operated by Clalit Health Services are located in
either a hospital or the community.
- Centers
for child development focus on early diagnosis, counseling, and care for
preschool children who may be suffering from developmental
or functional
disabilities. The centers view their primary role as providing diagnosis and
care for developmental problems in order
to promote a child’s maximum
ability to function. Many center directors view support of the family as a
primary objective.
Some centers operate nursery schools for children with
mental retardation, blindness and autism. The centers’ services include
diagnosis by a developmental physician or neurologist; psychological diagnosis;
paramedical diagnosis and care (e.g., physical and
occupational therapy,
communications therapy); and consultation with a social worker. Some centers
also offer special services,
such as parent support groups, art therapy and
examination by a developmental nurse.
- A
study of a representative sample of 16 centers for child development found that
the centers treat between 100 and 800 children at
any given time (the average
number was 450). In all, then, the centers serve an estimated 13,000 children
at any given time. Most
of the centers treat children age three and older.
Under the National Health Insurance Law, child development services are covered
by the sick funds up to age six, though there is no age ceiling on services for
children with severe physical disabilities. As of
1998, the centers operated by
the Maccabi Sick Fund and the Ministry of Health usually ceased treatment at age
six, while the centers
operated by the Clalit and Meuhedet Sick Funds treated
children as old as seven and eight. Onequarter of the centers studied had
special programs for children ages 1112 with learning disabilities and behavior
problems (SandlerLoeff and Naon, 1997).
- The
majority of children who receive care at these centers suffer from developmental
retardation, language impairment, and learning
disabilities. The centers
operated by the Ministry of Health and the Clalit Health Services also treat a
relatively large proportion
of children with more severe disabilities, including
moderate to severe mental retardation and cerebral palsy.
- According
to center directors, some groups of children are not adequately covered by the
centers, including Arab children, ultraOrthodox
Jewish children, children who
are new immigrants and children from disadvantaged families. A recent study of
these centers revealed
that most of them have waiting lists, and that the
waiting time for specific services, such as speech therapy, may be as long as
several months. This is critical, as early detection may be crucial to
overcoming developmental problems. Center directors cited
several reasons for
this situation: (a) the centers themselves do not have the resources to
identify children who need intervention
and, except for family health centers,
neither do other services; (b) both families and medical professionals in the
community lack
awareness of developmental disabilities; and (c) the centers do
not have staff who speak languages other than Hebrew a fact which
makes
utilization of services even more difficult for some population groups
(Strosberg, SandlerLoeff and Naon, 2000).
- Another
group whose needs are not being met is that of children with nonphysical
disabilities who require care beyond age six (when
their eligibility for care
under the National Health Insurance Law ends). If deemed eligible by a
placement committee, these children
may receive care through the special
education system. Most children with nonphysical disabilities who receive care
at a child development
center are ineligible for special education, and have
been integrated into the regular education system (i.e.
“mainstreamed”); these children may receive assistance in the
framework of a “reinforcement basket”, which only partially covers
their needs. Other needs are met by continuing programs,
offered by other
frameworks. Child development centers have proposed extending their services to
additional age groups.
- Children
with somatic (physical) disabilities are eligible for services after age six
under the National Health Insurance Law. Most
are eligible for paramedical
services under the Special Education Law. The majority of center directors who
participated in the
study cited above reported that they do not provide services
to children who attend special education frameworks.
- Another
problem with coverage arose following implementation of the National Health
Insurance Law, which made the sick funds responsible
for financing developmental
services for children under the age of eight. Under the law, these services are
conditional upon a copayment
by parents; however, copayment covers only a small
proportion of the cost of service which may be substantial, if a child requires
more than one type of service, or if a family has limited income. In the past,
parents could petition a special committee to be
exempted from copayment.
However, these committees were disbanded following implementation of the law and
the transfer of responsibility
to sick funds, such that parents with severely
disabled children, or with limited financial means, may not be able to afford
services
(Strosberg, SandlerLoeff and Naon, 2000).
- It
should also be noted that the transfer of responsibility for developmental
services to the sick funds caused upheaval in the system
of child development
centers. As the sick funds were now compelled to cover these expenditures from
the mandated basic basket of
services, they developed their own developmental
centers, believing this to be more cost effective. However, the sick
funds’
developmental centers focus on children with less severe problems,
which do not require a multiprofessional response. This led to
fewer referrals
to centers operated by the Ministry of Health, which employ multiprofessional
teams and which serve children whose
disabilities are more severe and require
greater expertise and more resources. It is not yet clear what impact this
trend may have
on the ability of the centers or the service system to meet the
needs of children with disabilities.
- The
Ministry of Health provides equipment and medical assistive devices to disabled
children, including devices to aid mobility and
walking, special mattresses and
beds, and hearing and vision aids, as well as additional devices at the
discretion of a committee
for exceptional circumstances. The Ministry usually
pays up to 75% of the cost of an assistive device, and 100% of the cost for
a
lowincome family receiving National Insurance Institute income benefits. In
order to receive 75% coverage of an assistive device
from the Ministry, a
physician’s confirmation of need is required (as is that of additional
professionals, in some cases).
In 1996, 663 pairs of special shoes or assistive
devices for walking, and 93 prosthetics, were provided to children with
disabilities,
most of whom had cerebral palsy or a somatic birth defect. An
interministerial committee comprising representatives of the Ministries
of
Health and Housing provides cash grants to adults and children who have impaired
mobility, which enable them to renovate their
home e.g., widen doorways,
build an access ramp, add safety features in the bathroom to make them more
accessible.
- Mental
health services. Public mental health services are provided through a network
of outpatient mental health clinics for children
and adolescents that are
operated by the Ministry of Health, sick funds, and hospitals for the
mentally ill. These clinics are staffed
by speciallytrained professionals, and
offer diagnostic testing, counseling and psychiatric care, as well as training
for parents.
Services are usually provided free of charge or for a token fee.
- Nonetheless,
professionals note large gaps between available mental health services and the
community’s needs. The clinics
have been criticized for serving primarily
middleincome groups and not addressing more difficult populations, including
dysfunctional
families. This may be because the clinics do not reach difficult
populations, such as noncompliant families and families with multiple
problems.
In recent years, the Ministry of Health has sought to improve mental health
services for children and youth. For example,
the Ministry helped establish a
mental health center for children in Beer Sheva to alleviate the shortage of
mental health services
in the south. The center reflected the Ministry’s
commitment to interorganizational efforts on behalf of atrisk populations.
A
similar center was established in Ashdod in 1997.
- Another
problem facing mental health service delivery is the inaccessibility of clinics
in some geographic areas. Most clinics are
regional, and serve a broad
geographic area. For example, prior to the establishment of the clinic in
Ashdod, psychiatric care was
available to the city’s children only at a
children’s clinic in a hospital in another city.
- Services
for children whose mental health problems require them to be hospitalized are
provided in the inpatient departments of hospitals
for the mentally ill.
According to Ministry of Health data, 369 children and youth were hospitalized
for psychiatric reasons in
1998.
- In
recent years, two issues have arisen regarding the psychiatric hospitalization
of children and youth. One concerns children who
are hospitalized only because
of the lack of another framework that suits their needs. In response to this
problem, the Service
for Children and Youth of the Ministry of Labor and Social
Affairs, in cooperation with the Ministry of Health, has begun to operate
outofhome frameworks that offer an alternative to
hospitalization.
- The
other issue concerns the compulsory psychiatric hospitalization of children and
youth a practice severely criticized in the 1997
State Comptroller’s
Report. According to the Treatment of Mentally Ill Law 1991, the person
responsible for a minor may request
that the minor be admitted to a psychiatric
hospital, and consent in the minor’s name to his hospitalization and
treatment.
However, if a minor who has reached the age of 15 refuses to be
hospitalized, a court order is necessary, issued on the basis of
the regular
causes cited in cases of compulsory hospitalization of a minor. If the minor
has not yet reached the age of 15 and his
caregivers realize that he does not
agree to be hospitalized, a decision will be made by a district psychiatric
committee for children
and youth comprising a legal professional, a psychiatrist
specializing in child and adolescent psychiatry, a clinical child psychologist,
an educational psychologist and a social worker. A minor who has reached the
age of 15 may ask to be voluntarily admitted to a psychiatric
hospital, although
if the person responsible for him does not agree, the consent of the court is
required. Fiftythree (about 10%)
children were admitted to a psychiatric
hospital in 1996 under a compulsory hospitalization order. The State
Comptroller
found that the district psychiatric committees for children and youth met
irregularly, and that some children and youth were hospitalized
in a manner that
contradicted the letter of the law. The Ministry of Health responded that
“substantial effort was made to
recruit committee members and set
guidelines ... The primary difficulty implementing the law stems from a lack of
manpower and the
short deadlines set in the law ... For many months we have
been working with the Ministry of Justice to alter the law” (State
Comptroller’s Office, 1997).
(b) The social welfare system
(i) The National Insurance Institute
- As
noted, the National Insurance Institute pays disabled child benefits to children
who are eligible for them by law.
- A
disabled child above the age of three whose disability renders him totally
dependent on his parents 24 hours a day is eligible for
a monthly benefit
equivalent to about 40% of the average wage. A completely dependent child who
is attending school or is older
than 14 is eligible for an additional 20%. In
addition, autistic children and deaf children up to age eight are eligible for
this
benefit, regardless of their diagnosed level of dependency. A disabled
child who is dependent on his parents to a great extent for
most of the day is
eligible for a monthly benefit equivalent to 25% of the average wage. Children
with Down’s Syndrome are
eligible for 50% of the full individual benefit,
regardless of their diagnosed dependency, as are children between the ages of
eight
and 18 who are hearing impaired (45 decibels), sight impaired or blind, or
who require protracted medical care (dialysis, chemotherapy,
etc.). In the
early 1990s, eligibility for disabled child benefits was extended to newborn
children.
- Children
whose disability is developmental are eligible for the benefit according to the
following criteria, regardless of their diagnosed
dependency:
− A young child suffering from a serious illness is eligible for the full
benefit;
− A young child suffering from a severe developmental deficiency is
eligible for 60% of the benefit, and for an additional
40% if he is receiving
developmental care (paramedical or other services);
− A young child with Down’s Syndrome is eligible for 30% of the
benefit and an additional 20% of the benefit if he is
participating in a care
program;
− A young child who is blind is eligible for the full benefit;
− A child with a hearing impairment is eligible for 60% of the benefit,
and for an additional 40% if he is participating in
a care
program.
- In
addition, children ages three18 with disabilities in their lower limbs who
undergo a medical examination at a district health office
and are found to have
impaired mobility are eligible for a child mobility benefit, instead of a
disabled child benefit. This provides
for a
standing loan for the purchase of an automobile, which is repaid without
interest or linkage when the automobile is sold. The loan
is equivalent to up
to 75% of the taxes paid when purchasing an automobile. In addition, a monthly
benefit is paid to cover expenditures
incurred in operating the automobile. On
average, it is equivalent to about onethird of the full benefit for a disabled
child.
It is not possible to receive both benefits for one child. However, a
family with two disabled children is entitled to a child mobility
benefit in
addition to two disabled child benefits.
- According
to National Insurance Institute data, in 1998, 14,379 children or 7.1 of
every 1,000 children in Israel received a disability
benefit from the
Institute. The proportion of children receiving National Insurance Institute
disability benefits was higher in
the Arab than Jewish population. This
corroborates the finding that a larger proportion of Arab than Jewish children
have severe
disabilities (and thus are eligible for National Insurance Institute
benefits); it also reflects the high rate of utilization of
this service in the
Arab population.
Table 28
Children receiving National Insurance Institute Disability
Benefits
in June 1997, by age (in absolute numbers)
|
Children receiving National Insurance Institute Disability
Benefits
|
Total
|
14 379
|
03
|
1 551
|
414
|
9 711
|
15+
|
3 117
|
Source: BenArie and Zionit, 1999.
- Eligibility
criteria for the child disability benefit have been developed on a piecemeal
basis; historically, the inclusion of various
populations has been influenced by
the activities of lobbyists (such as parents of children with a specific
disability). Therefore,
eligibility criteria for providing benefits do not
always reflect the level of disability. Consequently, efforts are being made
to
revise the criteria to better reflect the needs of the child. Based on data
from a survey of children with disabilities (Naon,
Ifrah and BaichMoray, 1998),
a proposal was made to change the criteria for provision of the disability
benefit, and to add some
4,000 children (half of whom are moderately or severely
retarded) to the eligibility pool. The Knesset’s health and welfare
committee has adopted the proposal and is promoting this
change.
- The
Fund to Develop Services for the Disabled of the National Insurance Institute
provides funding for the development of new services
for disabled people who
receive disability benefits. Grants are made to develop services (such as
structural modifications, rehabilitative
or therapeutic equipment) to public
agencies (e.g., associations, local authorities). The fund is not meant to
be used for the development
of services that are the stated responsibility of
other government agencies (e.g., opening a school or clinic), nor is it
meant to
be used to purchase property or to construct facilities.
(ii) The Ministry of Labor and Social Affairs
- Two
divisions of the Ministry of Labor and Social Affairs are responsible for the
care of the disabled of all ages. The Division
of Care for the Mentally
Retarded is responsible for children with mental retardation, and the Division
of Rehabilitation is responsible
for children with somatic disabilities, the
blind and the deaf, and those suffering from borderline mental retardation who
have not
been classified as being mentally retarded by the Division of Care for
the Mentally Retarded.
- These
divisions are responsible for placing disabled children in outofhome frameworks,
and for supervising these frameworks. In addition,
they supply a variety of
services to disabled children in the community. Along with the Ministry of
Education and other organizations,
they operate preschools for disabled children
who are not yet eligible for special education, and help operate extended school
day
programs for children with disabilities, beyond what is budgeted by the
education system. In addition, they operate respite care
centers for these
children, so as to grant their families temporary relief from the ongoing need
to provide care.
- The
Service for the Blind is responsible for providing blind people with special
equipment that enables them to function normally
in the community. In also
provides aides who accompany disabled children to classes in regular
schools.
- The
Ministry also provides support services and psychosocial assistance to disabled
children and their families through local social
welfare departments. It also
places disabled children in foster and adoptive homes (see Chapter
VII).
- As
noted, the social welfare system has primary responsibility for providing
outofhome care. At present, some 1,500 mentally retarded
children and a small
number of children with other disabilities reside in various frameworks. A
small number of children currently
reside in several community housing
frameworks, one of which is for children with mental retardation, and one of
which is for those
with physical disabilities. Community housing frameworks are
developing rapidly. While most of them serve children with mild disabilities,
four new facilities are geared for severely mentally disabled
children.
- As
noted, in the past, children with emotional or severe behavior problems were
admitted to psychiatric hospitals due to the lack
of a more suitable way to meet
their needs. In the 1990s, in an attempt to better meet these needs, the
Ministry of Labor and Social
Affairs established posthospitalization units
within existing outofhome frameworks. These units are geared for severely
emotionally
disturbed children who have been discharged from a psychiatric
hospital but who are unable to reside in the community; their goals
are to be an
alternative to psychiatric hospitalization and to prevent long, unwarranted
hospital stays. In 1996, there were six
such posthospitalization
frameworks.
- Another
group of children with disabilities (primarily learning disabilities and
behavioral disorders) is that of children who reside
in outofhome and
rehabilitation frameworks supervised by the Service for Children and Youth of
the Ministry of Labor and Social Affairs
(see Chapter VII).
(c) The education system
- The
education system is a major provider of services to disabled children in Israel,
through special education and regular schools,
and support frameworks under the
auspices of the Ministry of Education. A major part of the services are
provided under the Special
Education Law 1988.
- Section
1 of the Special Education Law covers “exceptional children” ages
three21 who are physically, mentally, emotionally
or behaviorally dysfunctional.
The goal of special education, as stipulated in section 2 of the law, is
“to promote and develop
the talents and abilities of the exceptional
child; repair and improve his physical, mental, emotional and behavioral
functioning;
teach him knowledge, skills and habits; and help him acquire
acceptable social behavior in order to ease his integration into society
and
employment”. It is assumed that these children have special educational
needs; that meeting these needs requires special
teaching materials and methods;
and that without these, the children will not enjoy equal developmental
opportunities.
- A
personal study plan must be prepared for each exceptional child attending a
special education framework. The plan should describe
the child’s level
of functioning at the time of its preparation, and set educational goals and
objectives, determine the length
of time and the means necessary to realize
them, and establish a standard for measuring whether these have been achieved.
At the
end of the school year, the child’s parents are given a written
evaluation of his progress, with reference to his personal
study
plan.
- The
approach of the law, as stipulated in sections 7b and 7c, is to integrate
disabled children into the least restrictive framework
possible. Eligibility is
determined by a placement committee composed of a representative of the local
school system (the chairman),
two Ministry of Education supervisors, an
educational psychologist, a pediatrician, a social worker, and a representative
of the
national special education parents’ committee. The placement
committee must hear the child’s parents or representative
before making a
decision; it may also hear directly from the child. In general, the committee
must explain its decisions to the
parents; if there is a reason for not doing
so, an educational psychologist, physician or social worker is given access to
the committee
protocol on behalf of the family. Every three years, the
principal of a special education institution must bring the students’
cases for review before the placement committee. Review may take place after a
shorter interval at the behest of the principal or
a voluntary organization that
serves exceptional children and that has been recognized by the Minister of
Education. The child’s
parents may also request a review one year after
the previous hearing. In addition, the placement committee’s decision may
be appealed to an appeals committee by the child, his parents, or a recognized
voluntary organization.
- Although
the aim of the law, as noted, is to integrate into regular education those
children who can benefit from such integration,
the law does not determine the
rights of these children, or the services for which they are eligible and which
would make integration
possible. Consequently, in practice, most of the funds
for implementing the law have been allocated to special education frameworks,
and this presents a serious barrier to mainstreaming. Despite this,
the Ministry of Education does allocate funds for mainstreamed children,
which are used to provide them with educational and paramedical
services. These
funds are allocated on an individual basis by “integration
committees” that operate at the local level,
and not under the provisions
of the law.
- Teachers
at a special education institution must be certified as teachers and have
undergone training in special education. However,
the directorgeneral of the
Ministry of Education is authorized to grant a temporary permit to teachers who
have not undergone such
training. In this way, nonteaching assistants and
caregivers such as psychologists may be employed in special education
frameworks.
The Minister of Education, with the consent of the Minister of
Finance, must set a maximum number of students permitted in a special
education
classroom. He is permitted (with the consent of the Minister of Finance) to
establish an extended school day at some or
all special education institutions,
to determine the number of hours in an extended school day, and to determine the
services necessary
for an extended school day
(e.g., meals).
(i) Implementation of the Special Education Law
- The
Special Education Law 1988 does not define the extent or type of services for
which students are eligible. Rather, it stipulates
that these be determined in
regulations governing the law’s implementation, which requires the
agreement of the Ministers of
Education and Finance. The lack of a clear
definition of eligibility under the law led to a protracted process, during
which regulations
and methods of implementation were determined. In addition,
disagreement over budgetary allocations between representatives of the
Ministries of Education and Finance further delayed
implementation.
- In
1994, a master plan was designed to help formulate standards and assess how much
the Special Education Law would cost the education
system. The plan details the
types of care to be provided under the law, as well as the number of care hours
and the manpower required
per disability. It defines the type and scope of
service provided by the education system to children who are eligible for
special
education, based on the extent of their disability and type of need, and
the type of educational framework.
- At
the request of the Ministry of Education, the JDCBrookdale Institute assessed
the equipment needs of special education frameworks
(Naon et al., 1996). The
results of this assessment became, in effect, a recommendation regarding the
extent of equipment allocation
under the law, and served as the basis for
equipping the special education system. In addition, the Institute for
Education and
Welfare Structures prepared a detailed construction plan for
schools in the special education system.
- In
order to implement the Special Education Law 1988, NIS 200 million over and
above the budget for the 1995 school year were allocated
over a fouryear period
(19961999, during which time implementation was to be completed). This
budgetary supplement was to facilitate
the gradual introduction of the baskets
of services included in the master plan. It did not cover three areas eligible
for separate
budget supplements: the provision of medical and paramedical care;
the physical development of special education institutions; and
the equipping of
special education frameworks.
- The
Special Education Law did not determine the extent of funding required to
implement it. Thus, its implementation is dependent
on the allocation of funds
by the Ministry of Finance, through negotiation with the Ministry of Education.
The process of implementation
has consequently been lengthy, extending over the
course of a decade. During this process, elements of the law that are
explicitly
defined, such as longer school days and extension of coverage from
age three to 21, have been implemented, while elements of the
law that are
ambiguous, such as the level of paramedical services or equipment required, have
not been implemented. Negotiations
between the Ministries are
continuing.
(ii) The structure of the education system for children with
disabilities and special needs
- Children
with disabilities and special needs may attend any of the following
frameworks:
− Special education schools classified according to the types of
disability of their students;
− Special classrooms in regular schools for students with less severe
disability;
− Special education kindergartens, and regular kindergartens and classes
into which a small number of students with special
needs have been
integrated.
- In
addition, many children attend regular schools but receive special education
services. A small proportion of them have been “mainstreamed”
by a
placement committee, while most of them receive special education services
without having been deemed eligible by a placement
committee, after having
been placed in a regular framework by an integration committee.
- According
to data from the Ministry of Education, about 35,000 children attend special
education frameworks. An additional 80,000
children receive special education
services in a regular framework (see Table 29).
Table 29
Students in special education frameworks, by type of framework,
1996
|
Number of students
|
Total
|
|
Special education schools
|
15 106
|
Special education classes in regular schools
|
16 163
|
Special education and integrated preschools
|
4 223
|
Source: BenArie and Zionit, 1999.
- Two
groups of disabled children in the special education system are of special
interest: those who are blind or have impaired vision,
and those who are deaf
or have impaired hearing. Although these children are portrayed as being part
of the special education system,
most have been mainstreamed into the regular
system and attend regular classes, receiving special education assistance and
assistive
devices that enable them to function like the other students. These
two groups, along with children who have learning disabilities,
are the only
ones who are almost completely mainstreamed into the regular education
system.
- Table
30 shows the distribution of children in special education frameworks by type of
disability, as defined by the Ministry of Education.
As can be seen in the
Table, the majority (70%) of students in special education frameworks have
learning disabilities, behavior
or emotional problems, delayed development
(preschool children), or mild retardation. Nineteen percent suffer from
moderate to severe
retardation, and 3% suffer from cerebral palsy or a physical
handicap. Seven percent are autistic or emotionally ill, or are
hospitalized.
Table 30
Children in special education frameworks (special
education schools
or special classes in regular schools), by main disability
|
Total students
|
Percentage
|
Total
|
35 492
|
100
|
Learning disabilities, behavior or emotional problems, mild
retardation, developmental or speech delay
|
23 915
|
67.5
|
Moderate retardation
|
3 952
|
11.0
|
Severe retardation
|
2 707
|
8.0
|
Deafness, hearing impairment
|
1 078
|
3.0
|
Blindness, visual impairment
|
114
|
0.5
|
Autism, mental illness
|
1 770
|
5.0
|
Cerebral palsy, physical handicap
|
1 123
|
3.0
|
Hospitalized
|
883
|
2.0
|
Source: BenArie and Zionit, 1999
* Disabilities are
defined according to accepted classifications of the Ministry of
Education.
(iii) Children with special needs attending regular
schools
- The
implementation of the Special Education Law 1988 is based on three guiding
principles, one of which is to mainstream children
into the regular education
system. Ministry of Education data indicate that about 80,000 pupils attend
classes in regular schools,
with the help of special education services.
- The
master plan defines two different baskets of services for children with
disabilities who attend regular schools. The “integration
basket”
is for students who have been mainstreamed by a placement committee, and
includes special education teaching, paramedical
and therapeutic services. The
“reinforcement basket” is for blind and visually impaired, and deaf
and hearing impaired,
students who have been mainstreamed (not necessarily by a
placement committee), and includes special aids and educational services.
The
Division for Special Education also covers educational services for homebound
students. Services are allocated according to
a student’s personal study
plan. The scope of services allocated as part of the integration and
reinforcement baskets is smaller
than that of the services allocated in special
education schools and classes. The Ministry of Education allocates some 84,000
weekly
special education hours (integration hours) for mainstreamed students.
Each local authority is allocated a quota of teaching hours
based on the number
of students in its jurisdiction, the school’s “development
index”, and the percentage of students
with slight disabilities who are
referred to placement committees in an effort to encourage their mainstreaming.
In addition, the
Ministry of Education allocates some 350 positions for fulltime
assistants to students with severe physical disabilities who have
been
mainstreamed into regular schools and need this assistance to function.
However, these resources are limited, and are provided
mainly to children with
severe disabilities. As a result, children with mild disabilities (such as
learning disabilities) do not
receive services in accordance with their
needs.
- Over
the years, programs have been developed to assist disabled children who have
been mainstreamed into the regular education system.
These programs lie on the
continuum between the full integration of disabled children into the regular
school system, through partial
integration in which the child learns some
subjects in a regular classroom or attends regular classes on certain days, to
full social
integration in and out of school through joint recreational
activities for disabled and nondisabled children. One example is the
MACHAR
Program, implemented in Jerusalem, which offers support and rehabilitation to
children with cerebral palsy who have been mainstreamed
into regular classes, as
well as paramedical services and educational services after school hours. It
should be noted that there
is no systematic information on the success of these
programs, nor is there information on or policy regarding the resources
necessary
for them to succeed. However, there is evidence that professional
assistance both to the disabled children and the regular schools
that integrate
them contributes to successful educational and social
integration.
- The
gradual implementation of the Special Education Law 1988 and the policy of
mainstreaming children with special needs into the
regular education system have
resulted in a significant decrease in the number of children attending special
education classes in
regular schools and special education schools. In 1991,
the proportion of students in special education schools and special education
classes in regular schools was 4% of all students in the Jewish sector and 2.3%
of all students in the Arab sector; by 1997, these
figure had dropped to 3% and
2%, respectively. For the most part, integration has affected children with
learning disabilities,
deafness or hearing impairment, and blindness or vision
impairment. There is no systematic policy of integration regarding children
with other disabilities. It is worth nothing that, due to the limited
allocation of resources to the regular education system, relative
to the special
education system, the needs of mainstreamed children may not be being adequately
met.
- Another
goal of the master plan for the implementation of the Special Education
Law 1988 is to make special education and paramedical
services available to
all those who need them, as well as to decentralize the allocation of resources
to municipalities and schools.
To this end, the Ministry has established 67
local/regional support centers, some of which are located in facilities that
also offer
paramedical and therapeutic services to disabled children. However,
not all regions have a center as yet.
- Children
with special needs, especially those with learning disabilities who attend
regular schools, are eligible for special consideration
regarding matriculation
examinations, including being given extra time to take the examinations, being
tested orally, and being exempted
from parts of examinations. The right to such
consideration is granted by a special committee, which bases its decision on the
diagnosis
of a psychologist or an expert in learning disabilities. In recent
years, increased awareness of learning disabilities has led to
a dramatic
increase in the number of requests for special consideration: In 1996, some
15,000 students petitioned the committee.
This will require reorganizing the
system of referral, rethinking who should make referrals, and reexamining the
criteria for referral.
- Special
services for children with disabilities children who attend both regular and
special education classes and schools are also
provided under other laws. For
example, the Safe Transportation of Invalid Children Law 1994 stipulates that
children ages three
to 21 who, due to physical, mental, emotional or behavioral
disability are unable to travel by themselves, are eligible for transportation
from their home or a proximate location to an educational institution and back,
in accordance with their needs and handicaps. It
is the responsibility of the
local authority in which a child resides to provide this transportation, and to
ensure that it is undertaken
in a safe vehicle that is adapted for the
child’s disability.
(iv) The involvement of parents and children in determining
placement and a program of care
- One
issue that has drawn a great deal of public attention is that of the process of
placement in special education, which stigmatizes
a child as being
“exceptional” and, when unwarranted, can impede his opportunities to
realize his potential and his right
to a suitable type and level of education.
Therefore, a child is only placed in a special education framework if it is
clear that
he cannot benefit from regular education. As noted, eligibility for
special education is determined by a placement committee.
- Placement
committees operate according to guidelines meant to ensure parental
participation in the placement process. Each includes
a representative of the
national special education parents’ committee, so that a layperson can
monitor the committee’s
decisions from the parents’ perspective and
offer a sympathetic ear to the parents of the child under discussion.
- Before
making a decision, the placement committee must hear the parents and allow them
to review all relevant documents. The committee
may also hear the child, though
this is not mandatory; nevertheless, according to administrative regulations,
the committee must
at least
consider hearing the child. The
committee must also inform parents in writing of its decision
and the reasons for it. The child, a parent or a representative of a public
organization can appeal a committee’s decision
within 21 days. Parents
may also have their child’s case brought before a committee for review
after one year.
- The
emphasis placed on parents’ rights and involvement in decisions concerning
their child’s placement also finds expression
in Ministry of Education
guidelines: “An ongoing dialogue with parents is desirable, as is the
provision of assistance in
admitting the child and adopting suitable methods of
care” (Ministry of Education, 1992).
- By
law, parents must be included in the preparation of their child’s personal
care and study plan at the beginning of each academic
year, and must be given
reports of his progress.
- There
is no systematic information on the extent to which these provisions are
adequately implemented. Apparently, this differs depending
on the locality and
the composition of the placement committee, and the approach of the specific
professionals involved in the committee.
- There
are, however, indications that the law’s directives are not being
implemented in their entirety. HILA, an organization
of parents of children in
the special education system, helps parents who feel their child has been or is
being unjustly placed in
special education. According to HILA, committees do
not always give preference to the regular system, and in many instances,
children
from families with low income (or who live in poor neighborhoods or
development towns) who have difficulty with their studies or
who have adjustment
problems are referred to special education. In addition, many parents are
unaware of their right under the law
to seek a review after one year, to appeal
the placement committee’s decision, and to be partners in the planning of
their
child’s study plan. Moreover, the HILA official reported that
parents are often not involved in setting their child’s
study plan, remain
unaware of efforts to assist exceptional children, and do not receive progress
reports that they can understand.
- According
to HILA, the problem is particularly severe among new immigrants, especially
those from Ethiopia who do not understand Hebrew
or the special education
placement process. Many parents claim that they are not invited to appear
before the placement committee,
and have no idea what is taking
place.
- On
the other hand, according to professionals, supervisors and parents in the
special education system, many schools hold special
activities for parents,
especially those whose children are in their first year of special education,
and include them in all aspects
of the special education placement process as
well as in making the study plan. Some professionals even claim that the need
to protect
the rights of parents and include them as partners is not to the
children’s benefit, and that the system “fears”
the parents
and “makes no move without them”.
- The
lack of systematic information on this issue impedes an estimate of how
prevalent such feelings are. Nevertheless, the system
is aware of the
difficulties that can arise between parents and professionals during the special
education placement process. In
recent years, a number of steps have been taken
to promote partnership between parents and professionals. The committee for
special
education of the HILA deals with problems encountered by parents in the
special education system nationwide. The committee maintains contact with
the Ministry of Education and various institutions, on
one hand, and with
parents who have “fallen between the cracks”, on the other,
promoting partnership between parents
and the special education system and
bridging the gap between parents and both schools and placement
committees.
- Recently,
various efforts have been made to improve the functioning of placement
committees and monitor their work. These include
the establishment of routine
procedures under the law; the formulation of regulations governing referral to
and the work of placement
and appeals committees; and the holding of study days
and workshops for committee members on the Special Education Law, committee
work
procedures, the mainstreaming of exceptional students, and the rights of parents
in the placement process.
- In
1994, a pamphlet was published for parents whose children have been referred to
a special education placement committee, explaining
the care provided to
children; the process of referral for psychological testing; the role and
functioning of placement and appeals
committees; and where to find additional
information.
(d) Voluntary organizations
- There
are a large number of voluntary organizations that serve people with
disabilities. Some organizations serve only children,
while others serve
children as part of a broader target population. Some organizations advocate
for the rights of the disabled,
while others provide information and counseling
or services, and others do a little bit of everything. We shall refer to some
of
the organizations that operate nationally.
(i) General organizations
- Bizchut
The Israel Center for Human Rights of People with Disabilities, established by
the Israel Association for Civil Rights, promotes
the rights, welfare and
wellbeing of disabled people of all ages by providing counseling and legal
representation concerning education,
housing and employment. It also provides
information on the rights of the disabled, and lobbies to raise public awareness
and promote
better legislation.
- The
Umbrella Organization of Organizations for the Disabled and of Unaffiliated
Disabled Persons promotes the full social integration
of the disabled. It
attempts to enhance the disabled persons’ selfimage and their image in the
eyes of others. It works on
behalf of all disabled persons and organizations
for the disabled in Israel, operating an information center, raising issues in
public
forums, lobbying for legislation, and conducting information campaigns.
It provides free legal counseling for disabled people and
makes referrals to
other organizations.
- KESHER
was established in 1989 as a pilot project of the Jerusalem Council for Children
and Youth. It became an independent, nonprofit
national organization in 1993.
KESHER’s professional counselors assist parents, free of charge, through
the maze of services
and multitude of service providers involved in their
child’s care. It helps them to sort out difficulties and reconnects them
to the relevant services, offers advice about service referrals, and acts as a
mediator/advocate for families with community agencies. KESHER’s
hotline for parents and professionals operates in Hebrew,
Arabic, Russian and
Amharic. Information on rights, benefits and services is constantly updated via
a bimonthly newsletter, as well
as in pamphlets on specific issues. A national
network of local branches is being developed.
- HILA
serves the parents of children in special education frameworks and promotes the
rights of these children.
(ii) Physical disability and handicap
- ILAN
The Israel Foundation for Handicapped Children provides assistance, education
and rehabilitation to children with polio, cerebral
palsy, and conditions that
result in motor dysfunction or impaired mobility. It sponsors a variety of
activities, including kindergartens
and schools, a Mainstreaming Center, clubs
and recreational frameworks for children, sports teams and activities, respite
care, vocational
training, the procurement of assistive devices, group homes,
and community housing for independent living. In addition, ILAN offers
children
and their families consultations with a social worker, and disseminates
information.
(iii) Hearing impairment
- MICHA
The Society for Deaf Children develops and operates educational, rehabilitation
and care frameworks for children newborn to
age seven who are hearing impaired
and their families, and provides professional counseling and support to the
organizations and
professionals that serve them. MICHA operates preschool
programs and programs in language acquisition for infants identified with
hearing loss by family health centers (in cooperation with the Ministry of
Health). In addition, MICHA operates programs through
regional associations,
including special frameworks for young children, care for children in integrated
preschools, communications
therapy, and psychosocial counseling for children and
their families. MICHA’s goal is to promote the inclusion of
hearingimpaired
individuals into education and society.
- SHEMA
operates under the supervision of the Ministry of Education. It identifies and
provides educational and rehabilitative services
to deaf and hearing impaired
children and youth ages six20. Available nationwide, SHEMA’s services
include developmental,
psychological and social diagnosis; psychosocial care;
counseling and training for parents; social clubs and activities; remedial
and
enrichment lessons; communications therapy; and financial assistance purchasing
hearing aids. It also disseminates information
and audiovisual materials, and
advises professionals. In addition, SHEMA has developed a model for
mainstreaming students with hearing
impairment, which is currently being
implemented.
(iv) Learning disabilities, retardation, autism and
Down’s Syndrome
- ALUT
The Israeli Society for Autistic Children cares for children from birth onwards
who have been diagnosed with varying degrees
of autism or P.D.D. (Pervasive
Developmental Disorder). ALUT establishes frameworks (settings) for these
children, and offers counseling
and guidance for parents. It sets up group
homes for young children, adolescents and adults. A center for parents provides
lectures,
parent support groups and raises awareness about autism
and P.D.D.
- AKIM
The National Association for the Habilitation of Persons with Mental Retardation
promotes the welfare of mentally retarded individuals
of all ages and all levels
of retardation, and their families. It provides therapeutic, educational,
occupational, social, sport,
cultural, housing, counseling services and respite
care for infants age six months, to adults age 30. It develops community
housing
and social services; offers legal assistance; establishes openhouses for
families (which offer individual or group therapy, guidance
and enrichment for
families, a parenttoparent program, and a club for parents); operates a social
center for retarded adults; offers
art education, organized outings, day and
holiday camps, and cultural and sporting events and disseminates information.
AKIM increasingly
encourages mainstreaming.
- YATED
The Association of Parents of Down Syndrome Children is a parents’
association that provides counseling and guidance;
operates an information
center; holds conferences and study days for parents and professionals; sponsors
family support groups; publishes
periodicals; maintains contact with government
ministries and public authorities to promote the rights of children with
Down’s
Syndrome and promotes research. This national association
contributes to the progress of children and adults with Down’s Syndrome,
aids their families, changes negative stereotypes about them, and ensures their
right to a happy and creative life.
- The
Shalem Foundation helps establish, finance, enlarge and equip community services
geared for retarded individuals, and gives financial
grants to local authorities
that develop such services. A condition of this assistance is the existence of
additional funding partners.
The Foundation does not underwrite manpower or
operational costs.
- NITZAN
Society for the Advancement of Learning Disabled Children and Adults,
established in 1964, is a voluntary parents’ association
that serves
children, adolescents and adults with learning, adaptive and functional
disabilities. NITZAN has 40 branches nationwide,
and employs professionals and
public figures in its institutions. It provides diagnosis; family counseling
and support; paramedical
care; psychological counseling; remedial instruction;
enrichment classes; assistance to special schools and classes; stipends for
lowincome families; and information about other service providers. To raise
awareness, NITZAN publishes pamphlets, organizes inservice
training and
conferences for professionals, and sponsors a pedagogic hotline for parents and
others.
(e) Discounts and tax breaks
- The
parents of disabled children receive tax breaks and discounts on fees as
compensation for having to invest financial and other
resources in the care of
their children. These include:
− Parents with a physically disabled, retarded, blind or autistic child,
or a child with an emotional disorder or chronic illness,
are eligible for an
income tax credit; they are also eligible for these credits if the child resides
in an outofhome framework.
− Parents of a child with special needs may receive a discount of up to
25% on their municipal taxes at the discretion of the
local authority.
− Parents of a child who receives a full disability benefit, and parents
of a blind child or a child undergoing dialysis are
eligible for discounted
telephone services. The discounts include a 50% reduction on regular monthly
charges; 60 free telephone
units per month for a disabled child and 300 units
for a blind child; and a 50% reduction on telephone line installation or
transfer
charges. Parents with two children who each receive a full disability
benefit are eligible for double discounts.
(f) Gaps in needs and services
- A
survey conducted by the National Insurance Institute and the JDCBrookdale
Institute examined the extent to which children’s
and families’
needs are being met by services. The survey revealed large gaps between needs,
and the services actually provided:
− Onethird of children with special needs receive paramedical services,
such as physical and occupational therapy, on a regular
basis.
− About 20% of the children with special needs meet with a social worker
or psychologist.
− About 80% of these children receive at least one special service from
the service system.
− Eightyfive percent of the children need medical care or supervision on a
regular basis, but only 40% actually receive it;
75% require paramedical
services, while only onethird receive them; and 83% require the services of a
social worker or psychologist,
yet only 18% receive them.
− Exclusive of the universal benefits from the National Insurance
Institute, gaps were found between Jewish and Arab towns
in the rates of
children with special needs who receive services: Larger proportions of Jewish
than Arab children receive most services;
at times, service provision is two to
three times as great in Jewish as in Arab towns.
− While multiprofessional committees recommended that 25% of the children
with special needs or 1.9% of all children in Israel
receive disabled child
benefits, only 0.6% of the children in Israel were receiving such benefits
at the time of the study, and
only 0.7% were receiving benefits in
1999.
(g) Issues arising from the complexity of the service
system: interservice coordination and the availability of information about
services
- As
can be seen, care for children with disabilities is provided by a variety of
agencies and organizations. Each one’s area
of responsibility is
determined by type of disability, age and type of service provided.
Consequently, a child may need services
from a number of sources concurrently.
For example, he may receive paramedical care from a child development center,
counseling
from the Educational Psychological Service, respite care from the
Ministry of Labor
and Social Affairs, and a disabled child benefit from the National Insurance
Institute. In addition, responsibility for care is transferred
from one
authority to another when the child reaches a certain age. For example,
responsibility for children with mental retardation
passes from the
country’s sick funds to the education system when the child enters the
special education system.
- Service
providers have a major impact on the lives of disabled children and their
families. Due to the multitude of providers, parents
often find it difficult to
navigate the network of services and to understand the regulations governing
eligibility. The parents
bear the responsibility for coordinating the services
their child receives so as to ensure continuity of care. Many parents complain
that every time a new professional enters the picture, they must relate the
history of their child’s disability, wrestle with
a complicated
bureaucracy, and have their child diagnosed yet again. Thus, two issues
confront the system of services for disabled
children: interservice
coordination, and the availability and accessibility of information to
parents.
- Professionals,
policymakers and parents of disabled children repeatedly emphasize the need to
coordinate and define more clearly the
roles of various organizations on behalf
of their respective target populations; and to establish mechanisms for
transmitting information
among professionals from different organizations who
care for individual children, and among those who care for children at various
points in time and in transition from framework to framework.
- At
present, the JDCBrookdale Institute is conducting a comprehensive study of
mechanisms for the coordination of services for disabled
children of all ages.
The study is focusing on policy, as well as on the coordination of care for
individuals. Its findings will
provide insight into the advantages and
disadvantages of existing coordination mechanisms. The study is being monitored
by a steering
committee, whose members represent a range of
organizations.
- As
may be seen from the description of the system of care, many organizations
attempt to provide parents with information on services
and rights. KESHER
periodically publishes an “Information Notebook”, the National
Insurance Institute periodically publishes
a guide to the rights of disabled
children, and other organizations use a variety of means to inform parents about
specific disabilities.
In order to meet the need for uptodate information on
the rights of parents and professionals to services, JDCIsrael established
a
computerized data base on rehabilitative services for people with disabilities,
including children. The data base is now managed
by the Henrietta Szold
Institute.
4. The accessibility of public areas and services
- Accessibility
to one’s environment is the key to true social integration and equal
opportunity. For the disabled, accessibility
is essential if they are to fully
participate in society. The public commission for the comprehensive examination
of legislation
concerning persons with disabilities emphasized an additional
aspect of accessibility: the visibility of the disabled in society.
Accessibility enables the disabled to be present in the community, and creates
contact and recognition between them and others.
This can promote the
participation of children with disabilities in the community. Several laws deal
in a limited manner with accessibility
for the disabled.
- In
addition, a number of dispensations for the families of disabled children are
meant to ease access. For example, special parking
permits are given to the
parents of children who have lower extremity motor disorders or who need a
respirator; these permits allow
them to park in spaces designated for disabled
drivers, as well as to park free of charge in areas where parking is available
for
a fee. The parents of children with mobility problems (i.e., who have been
granted a 60% disability rating by the district health
bureau or have been
designated by a physician as having a disability that requires a motor vehicle
for purposes of mobility) are
exempt from annual motor vehicle registration
fees.
- Despite
laws pertaining to accessible planning and construction, many buildings in
Israel are inaccessible to wheelchairbound persons.
In a spotcheck conducted by
the Ministry of Economic Planning in 1995, 40% of the structures examined were
found to be inaccessible.
In general, schools, shelters and public
transportation are inaccessible to wheelchairbound individuals. Many city
sidewalks have
not been lowered despite provisions in the Municipalities
Ordinance. The results of a survey conducted for the City of Tel AvivJaffa
in
1993 and presented to the public commission on legislation on the rights of
persons with disabilities in Israel reveal that the
majority of municipal
structures (hospitals, preschools and schools, colleges and universities,
museums, cultural and community centers,
clubs, sports centers and swimming
pools, sick fund clinics and movie theaters) are inaccessible to the disabled:
Only 17 of the
167 structures examined were found to be accessible.
- Problems
of physical accessibility are compounded for some disabled people by problems of
sensory accessibility. Most services provided
by local authorities
(e.g., information and service counters) are inaccessible to people who are
blind or deaf. Most television
broadcasts are inaccessible to the deaf. Even
in times of emergency (such as war) or particular public interest (elections),
the
country’s television networks do not provide closecaptioned or signed
broadcasts for the deaf. Few traffic signals emit an
audible sound that would
enable the blind to cross the street unassisted.
- For
children, access to schools is particularly important. According to the
Planning and Building Law 1965 and the Planning and Building Regulations (Permit
Application, Permit Terms and Fees) 1970, a permit will be denied for the
construction of a public building that does not
comply with regulations
concerning access for the disabled. According to these regulations, in schools
and other public structures,
only one storey need be accessible to the disabled.
As such, even when the law is implemented, it is difficult for disabled children
to become integrated into schools a fact often cited as the primary difficulty
with mainstreaming.
- An
Israeli Supreme Court’s ruling dealt specifically with this issue
((Petition to the) High Court of Justice 7081/93 Botzer v. MaccabimReut
Local Council, P.D. 50(1) 19). In this case, a wheelchairbound youth
suffering from multiple sclerosis petitioned the court to require his school
to
install an elevator, which would enable him to use the lavatory, which was not
on the same floor as his classroom. The local
authority had refused to install
the elevator because of the high cost involved. The court found in favor of the
youth, stating
that legislation concerning the accessibility of public
institutions had been passed to enable the disabled to become integrated
into
society; it ruled that the local authority must comply with the letter of the
law, despite the considerable financial expense.
- The
accessibility of cultural and recreational facilities is also particularly
crucial for disabled youth. As noted, there is evidence
that many such
facilities are inaccessible to children and youth with disabilities. According
to the chairman of the Knesset culture
and recreation subcommittee, thousands of
children and youth with special needs are unable to join youth movements or
participate
in nature and sports activities. Nevertheless, according to the
director of the culture and arts division of the Ministry of Education,
the
Ministry has no national plan or special budget for the
disabled.
- The
report of the public commission on comprehensive legislation on the rights of
persons with disabilities in Israel recommended
that the right of the disabled
to access to public spaces and services be grounded in law. It also recommended
that this right be
“translated” into detailed regulations that
ensure the law’s implementation, and that implementation be effectively
enforced. The commission also proposed that the initiation and development of
cultural and recreational activities for the disabled
become mandatory for the
Ministry of Education, the Ministry of Interior and the local authorities, and
that preference be given
to mainstreaming disabled children into activities for
nondisabled children.
- In
recent years, JDCIsrael, in cooperation with the Association of Community
Centers, has been implementing a program promoting accessibility,
focused on
public recreation sites and national parks and shrines. As a basis for this
program, a comprehensive survey was conducted
and a data base established on
cultural, recreational and vacation sites for persons with impaired mobility.
The data base covers
nature reserves, holy sites, national parks, archaeological
sites, museums, hotels and inns, and vacation and sports facilities.
It
contains important information about parking and entry, a site’s
accessibility and suitability for people with impaired
mobility, hearing or
vision, the accessibility of public restrooms, and so forth. This information
helps families of children with
disabilities plan vacations and recreational
activities. Despite the recent interest, the expansion of accessibility
represents
a major challenge that needs to be addressed.
D. Articles 6 and 24 of the Convention Health and health
services
- This
section will review primary health indices for children in Israel, the system of
primary and preventive health services, efforts
to promote the health of the
population in general and that of vulnerable groups in particular, and the
accessibility of health services.
In addition, it will address the extent to
which the provision of health services considers the views of children.
1. Basic data on the health of children and youth in
Israel
- The
health problems of children and youth in Israel are similar to those of children
elsewhere in the western world. According to
indices such as life expectancy,
infant mortality, public expenditures on health, and number of practicing
physicians, Israel holds
a respectable rank among western industrialized
nations. Following we present data on mortality rates for women in childbirth,
infant
and child mortality rates, underweight births, the prevalence of
infectious diseases among children, injuries caused by accidents,
adolescent
health behavior, and traditional customs that may have an impact on
children’s health.
(a) Mortality rates of women in childbirth, infant mortality
and underweight births
- The
mortality rate for women in childbirth in Israel has declined steeply during the
past 50 years. At present, it equals the rates
for the most developed
nations: 0.60.8 per 10,000 births, with no variance among
subpopulations.
- Progress
in medical knowledge and technologies and changes in lifestyle and health
behavior have caused infant mortality rates to
drop significantly. If at the
end of the 1970s Israel’s infant mortality rate was 18.7 deaths for every
1,000 live births,
by 1998, it was 5.8 deaths for every 1,000 live births.
However, there was variance among population subgroups: 4.2 deaths for
every
1,000 live births among Jews, 3.6 among Christians, 9.3 among Druze,
and 8.7 among Moslems. It should be noted that the difference
in the
mortality rates of Jewish and Arab infants remains stable, despite the decline
in overall infant mortality rates. Table 31
shows the gradual decline in infant
mortality rates in Israel during the 1980s and 1990s.
- The
most prevalent causes of infant mortality are birth defects and perinatal
complications. The mortality rate due to birth defects
is higher among Arabs
than Jews (3.6 per 1,000 births and 1.5 per 1,000 births,
respectively, in 19931997). This is due, at least
in part, to the higher
incidence of such defects.
Table 31
Infant mortality per 1,000 live births, by population group,
19791996
|
Total
|
Moslems
|
Druze*
|
Christians*
|
Jews
|
1979
|
18.7
|
24.6
|
24.8
|
16.8
|
12.9
|
1983
|
15.1
|
21.2
|
20.1
|
15.0
|
10.9
|
1987
|
11.1
|
18.4
|
18.1
|
11.8
|
8.9
|
1991
|
9.2
|
14.5
|
13.9
|
11.1
|
7.2
|
1996
|
6.3
|
10.0
|
8.9
|
4.1
|
5.0
|
1998
|
5.8
|
8.7
|
9.3
|
3.6
|
4.2
|
Source: BenArie and Zionit, 1999.
* It should be noted
that the Druze and Christian Arab populations in Israel are small, and that
there are significant fluctuations
in infant mortality among these populations
annually.
- In
1998, 92% of the babies born in Israel weighed more than 2.5kg, and 5% weighed
between 2.0kg and 2.4kg. The figures were similar
for both Jews and Arabs.
(It must be noted that in recent years there has been a slight increase in the
percentage of underweight
newborn babies, due to an increase in the use of
fertility treatments, which may result in multiple births.)
- The
Department of Health Service Studies at Tel Hashomer Hospital near Tel Aviv,
which is a support unit of the Ministry of Health,
is participating in an
international study of the causes of infant deaths and ways to reduce them.
Along with hospital pediatric
wards, the department is also participating in a
study of underweight newborn babies. The results of these studies will be used
in designing health policy.
(b) Child mortality
- In
1997, the child mortality rate in Israel was 0.4 per 1,000 children age onefour,
0.2 per 1,000 children ages five14, and 0.6 per
1,000 children ages 1519.
Table 32 shows the causes of death for children age one14 in 1996. Beginning at
age one, accidents are
a significant cause of child deaths.
Table 32
Causes of death among children ages 114 in 1996, by population
group (in %)
|
Total
|
Jews
|
Arabs
|
Age
|
Age
|
Age
|
14
|
514
|
14
|
514
|
14
|
514
|
Total
|
|
100
|
100
|
100
|
100
|
100
|
Accident
|
19.6
|
21.3
|
18.8
|
23.1
|
20.0
|
19.0
|
Suicide
|
|
1.4
|
|
2.5
|
|
|
Other external causes
|
8.2
|
11.8
|
5.8
|
13.2
|
9.6
|
10.0
|
Birth defect
|
16.3
|
6.3
|
14.5
|
8.3
|
17.4
|
4.0
|
Infectious disease
|
1.6
|
3.2
|
2.9
|
3.3
|
0.9
|
3.0
|
Cancer
|
9.2
|
15.8
|
18.8
|
17.4
|
3.5
|
14.0
|
Illness or other cause
|
45.1
|
40.3
|
39.9
|
32.2
|
48.7
|
50.0
|
Source: BenArie and Zionit, 1999.
(c) Infectious diseases
- Data
regarding the prevalence of infectious diseases are based on reports of the
Ministry of Health. The data in Table 33 indicate
a greater prevalence of some
diseases among Jews. However, as the extent of reporting is not uniform (there
are gaps in reporting
in the Arab sector), the prevalence of infectious diseases
among Arab children may actually be greater than is indicated by the data.
In
addition, as some diseases (such as measles) are epidemic, and break out every
few years, it is difficult to identify trends
in the prevalence of disease in
recent years. It should be noted that almost every child in Israel has been
inoculated against measles,
rubella and tuberculosis.
Table 33
Contagious and infectious diseases among children
newborn to age 14 in 1996,
by age and population group (per 100,000 in each
age group)
|
Population group
|
Age
|
Newborn
|
14
|
59
|
1014
|
Rubella
|
Jews
|
0.0
|
0.9
|
0.2
|
0.2
|
|
Arabs
|
0.0
|
0.0
|
0.0
|
0.0
|
Measles
|
Jews
|
0.0
|
2.1
|
0.0
|
0.5
|
|
Arabs
|
0.0
|
0.8
|
0.0
|
0.0
|
Salmonella
|
Jews
|
273.5
|
398.0
|
88.8
|
39.9
|
|
Arabs
|
80.3
|
90.4
|
9.8
|
4.9
|
Campillobactereosis
|
Jews
|
32.5
|
74.8
|
18.3
|
10.8
|
|
Arabs
|
8.4
|
9.0
|
0.0
|
0.0
|
Tuberculosis
|
Jews
|
1.2
|
1.5
|
1.0
|
1.0
|
|
Arabs
|
0.0
|
0.8
|
0.0
|
0.8
|
Source: BenArie and Zionit, 1999.
- Infant
mortality in Israel from intestinal and other infectious diseases is low. In
1996, infectious diseases were responsible for
1.5% of all infant deaths in
Israel, 1.6% of all deaths of children ages onefour, and 3% of all deaths of
children ages five14.
(i) Preventive care and control of epidemics
- District
health bureaus are responsible for the surveillance of sanitary conditions at
institutions for children, and for preventing
the outbreak of infectious
diseases. If there is an outbreak of meningitis or hepatitis A, everyone who
has come in contact with
the patient receives free preventive treatment from the
district health bureau.
(ii) AIDS
- By
1995, there were 83 cases of children with the HIV virus, who were born to
HIVpositive parents in Israel; 11 of these children
eventually contracted AIDS,
and seven of them died. As of late 1998, there were 96 HIVpositive children in
Israel. As can be seen
in Table 34, there was no trend of increase in
the rate of new cases identified during the 1990s.
Table 34
New cases of AIDS among children newborn to age 14
(per 100,000 children) in Israel, by year
|
Number of cases
|
1990
|
0.7
|
1991
|
0.6
|
1992
|
0.7
|
1993
|
0.9
|
1994
|
0.6
|
Source: Central Bureau of Statistics, 1998.
- The
Detection of the AIDS Virus in Minors Law 1996 allows a minor to undergo
voluntary testing for HIV without the consent of his
parent or guardian. The
physician at the medical institution conducting the test must fully explain it
and its implications to the
minor, as well as how the disease is transmitted and
methods of prevention, and must verify that the minor opposes seeking the
consent
of his parent or guardian. The physician must be convinced that, in
light of the minor’s age, emotional maturity and ability
to form an
opinion, it is in the minor’s best interest to be tested without the
consent of his parent or guardian. If the
minor is under age 14, a team
comprising a social worker and physician must consent to the test. If the test
is negative, the results
are given to him by a specially trained physician,
nurse or social worker. If the test is positive that is, if the minor is found
to be carrying the AIDS virus the results are reported to him by the abovenoted
team, in the presence of a welfare worker, who then
asks if he wishes to inform
his representative of the test results. If the minor refuses to inform his
representative, he is given
guidance and instruction about methods of treatment.
The law requires that everyone involved in this process preserve the
minor’s
right to confidentiality.
(d) Accidents
- The
Israeli public has recently become more aware of the issue of injuries to
children and youth due to accidents in the home, on
the road and at school. A
number of agencies provide information on accidental injuries to children. The
Ministry of Health maintains
a central data base on child hospitalizations. In
1997, the National Council for the Child initiated and funded groundbreaking
research
on the referral of children to emergency rooms, and their
hospitalization following accidents. The goal of the study was to estimate
the
annual rate of referral of children and youth to hospital emergency rooms in
Israel, and to identify risk groups. The study
examined data on referrals in
1994 and, after weighting, estimated that the annual number of injuries from
accident was 131,643,
or 693 injuries per 10,000 children per year. The injury
rate is higher among boys than girls, and among Jews than Arabs. The highest
rate of injury from accident is among children newborn to age four. Traffic
accidents are particular cause for concern: According
to Israel police data, in
1998 some 7,200 children and youth most of them passengers of vehicles or
bicycle riders were injured
in traffic accidents. More than 6,000 of them were
slightly injured, about 700 of them suffered severe injuries, and 76 were
killed. The Ministry of Transportation and the Police Force conduct
information campaigns in the media and schools to encourage traffic
safety among
children and youth, which stress the importance of wearing a helmet when riding
a bicycle and not driving after drinking.
- The
Ministry of Health conducts administrative followup of accidents. A
memorandum from the directorgeneral of the Ministry stipulated
that schools
must report any injury occurring on school grounds or on the way to or from
school. During the 1997/98 school year,
14,042 injuries were reported,
representing 0.9% of all students. A survey conducted in 1994 and 1998 on
the health and health behavior
of youth covered the subject of accidents in
depth. (This survey was part of the international Health Behavior in Schoolage
Children
(HBSC) survey project of the World Health Organization (WHO), which
facilitated comparison of the health and risk behavior of schoolage
children
from 23 countries. Israel’s participation in this international framework
indicates its commitment to longterm, comprehensive
monitoring of the health of
children and youth.) It found that, as in other countries, a much greater number
of injuries was reported
by the youth in the survey than by the Ministry of
Education and the Ministry of Health. This may be explained in part by
differences
in methodology and criteria: Information was gathered from youth
using anonymous selfreporting, and the HBSC survey covered injuries
that were
less serious than those that require hospitalization or reporting by the
Ministry of Education. According to the findings
of the 1998 HBSC survey, some
55% of the sixth and tenth grade students who were interviewed said they had
received an injury requiring
medical attention at least once during the 12
months prior to the survey; this was the highest rate among the 12 nations that
included
this index in their study. Nevertheless, the rate of serious injury
was relatively low in Israel, compared to other countries.
According to the
researchers, this reflects relatively high rates of use of and accessibility to
health services (e.g., school nurses)
in Israel for slight injuries,
compared to other countries.
- An
interministerial, multidisciplinary work group is comparing HBSC data with data
from the Ministries of Education and Health, with
the aim of developing a
national strategy to significantly reduce injuries among children and
youth.
- Accidents
are a primary cause of death among children over the age of one year in Israel:
In 1996, about 20% of all deaths of children
ages onefour and 21% of all deaths
of children age five14 were caused by accidents. The most frequent causes of
accidental death
were traffic accidents, drownings, falls and traumatic
injuries, suffocation, poisoning and burns.
- The
Interdisciplinary Center for Child Education, Health and Safety at the
children’s hospital in central Israel conducts research,
disseminates
information, and makes policy recommendations aimed at reducing child injuries
due to accident.
(e) Adolescent health behavior
- In
recent years, adolescent health has been the focus of much attention in Israel.
In 1994, a survey was conducted by BarIlan University
and the JDCBrookdale
Institute in conjunction with the Ministry of Health and the Ministry of
Education as part of the HBSC project
(Harel et al., 1997). Its
findings have been widely disseminated and discussed, and inform efforts to
prevent injury and risk behavior
among adolescents. This survey was based on
the selfreports of some 8,000 Jewish students in grades six through 11. In
1998, a
followup survey was conducted that included a similar number of Israeli
Jewish and Arab youth in grades six through ten. Below we
present a number of
findings from these two surveys, and indicate the trends they revealed regarding
the health habits of youth in
Israel.
(i) Nutrition and physical exercise
- Both
surveys found that 90% of the youth in Israel eat fruits and vegetables at least
once a day the highest percentage among all
of the participating countries. On
the other hand, the proportion of youth in Israel who consume food and drink
that is rich in
sugar or fat was large, compared to that in other countries.
The amount of physical exercise engaged in by Israeli youth was relatively
low,
although many youth reported participating in passive activities such as
watching television and playing computer games. Many
girls in Israel reported
that they did not engage in any physical activity, although they did report
dieting to lose weight at a
higher rate than did girls in any other
participating country; most of them did this without professional
supervision.
(ii) Smoking, and alcohol and drug use
- The
rates of smoking among Israeli youth are lower than those among European youth.
Nevertheless, 13% percent of the boys and 6%
of the girls in 11th grade reported
smoking at least once a week. Twentyfive percent of the boys and 13% of the
girls in tenth grade
reported smoking regularly. It was of particular concern
that 8% of the boys and 2.5% of the girls reported smoking at least once
a week
by the sixth grade. These percentages were much higher among the Arab
population, where 14% of the boys and 5% of the girls
reported that they smoke.
In addition, there is a trend of decline in the age at which adolescents begin
smoking.
- The
percentage of students who reported drinking alcoholic beverages at least once a
month was already high in the lower grades (36%
of the boys and 20% of the
girls). This percentage increases with age, so that by tenth grade, 46% of the
boys and 24% of the girls
reported drinking alcohol at least once a month.
Seventeen percent of the boys and 6% of the girls reported drinking heavily
(five
or more alcoholic drinks within a few hours) during the past month, and
similar percentages reported having been drunk at least once
in the past. (It
should be noted that these were the lowest rates found among all of the
countries that participated in the survey.)
The rates of drinking and the
amounts of alcohol consumed were higher for boys of all ages than for girls,
although this gap narrows
as age increases. In comparison with other
participating countries, students in Israel begin drinking alcohol at an earlier
age.
However, as age increases, the percentage of those who drink grows slowly,
such that adolescents in Israel have one of the lowest
drinking rates of
adolescents in all of the participating countries.
- The
1994 survey revealed that 10.5% of the tenth and 11th grade students in
Israel’s State school system had used some type
of illegal drug or pills
during the past year (4.7% had smoked hashish or marijuana, 2.5% had taken
L.S.D., 5.9% had taken speed
or diet pills, 6.9% had taken sleeping pills or
tranquilizers, 2.5% had used methadone, 2.8% had used opium, heroin, or
“black
tar”, and 2.6% had used crack or cocaine). Some reported
using the drug only once, while others reported wider use. For example,
of
those who reported using hashish, 33% said they had used it 25 times or more
during the past year. The tendency to use drugs
was found to be greater among
students from a very good or a poor economic background, than among those from a
middleclass economic
background. The survey findings corroborate those of a
national survey on the use of addictive substances conducted in 1998 by the
Drug
Prevention Authority, a government agency that designs policy and disseminates
information concerning the prevention of drug
abuse (Drug Prevention Authority,
2000). According to the 1998 survey, 9.8% of all youth in Israel reported using
some drug during
the past year, while 87% of them reported being unwilling to
try any drug. Among youth who neither attend school nor work, 31.6%
reported
using some drug during the past year, while only 57% reported being unwilling to
try any drug.
(iii) Sexual behavior and birth control
- The
1994 survey also examined the sexual behavior of youth in Israel. It found that
20% of the students in the tenth and 11th grades
had already engaged in sexual
intercourse, close to half of them with more than one partner. This rate was
low, relative to the
United States, where 50% of the youth reported thus.
The survey also examined the practice of safe sex. Fortythree percent of the
boys and 20% of the girls who were sexually active reported that they did not
use a condom the last time they had sexual intercourse;
13% of the boys and 16%
of the girls reported that they used no birth control measures whatsoever the
last time they had intercourse.
- The
number of teenage pregnancies in Israel is low. An international comparison of
live births among girls ages 1519 revealed that
the rate of girls in this age
group who give birth in Israel is among the lowest of the countries
participating in the study an
average of 6.0 births per 1,000 girls
between 1990 and 1995 (BenArie and Zionit, 1999). In 1998, some 700 minors gave
birth in Israel,
most of them Arabs. There were no births among minors under
the age of 15. It appears that most of the minors who give birth are
age
17 or 18, at which point they are legally entitled to marry. Most of the girls
who give birth at a younger age are also married.
(For information on
permission for pregnant minors to marry, see Chapter IV.) It should be noted
that in 1997 more than 1,000 girls
age 18 or under applied to committees to
terminate a pregnancy; more than half of them were under the age of 16, and most
of them
were unmarried.
Table 35
Live births among minors in 1998, by age,
population group and marital status
|
|
Age
|
15
|
16
|
17
|
Total
|
725
|
36
|
164
|
525
|
Population Group
|
|
|
|
|
Jewish
|
181
|
10
|
41
|
130
|
Arab
|
540
|
26
|
123
|
395
|
Marital Status
|
|
|
|
|
Unmarried
|
272
|
23
|
90
|
159
|
Married
|
424
|
13
|
70
|
341
|
Source: BenArie and Zionit, 1999.
* Includes cases
where religion or marital status are not known.
(iv) Emotional wellbeing
- The
HBSC survey also examined the emotional wellbeing of youth. Nineteen percent of
the youth reported that they were not at all
happy the highest rate of all
participating countries. About onefifth reported being very
happy.
- Eighteen
percent of the youth reported experiencing emotional symptoms (anger,
nervousness, a bad mood) almost every day, and 40%
reported experiencing
physical symptoms (headaches, stomach aches, backaches, dizziness) more than
once a week. Moreover, about
onefifth reported having difficulty falling asleep
almost daily, and 28% reported feeling sleepy in the morning on their way to
school
at least four times a week. Israel was ranked sixth of 28 countries for
this index. Rates of some of the physical and emotional
symptoms reported by
Arab youth were high enough to be cause for alarm. For example, half of the
Arab youth reported experiencing
physical symptoms, and onethird of them
reported experiencing emotional symptoms.
- The
1994 survey examined suicidal thoughts and acts among tenth and 11th grade
students. The findings reveal that a relatively large
percentage (17%) of boys
and girls had seriously contemplated suicide during the previous 12 months.
Nine percent reported devising
a plan to take their life during that period, and
6% reported actually attempting to take their life at least once. As this
subject
was not part of the international survey, it is not possible to compare
Israeli youth to those in other countries.
- In
1997, 15 teen suicides and 234 attempted suicides (30 girls, 190 boys, and the
remaining genders unknown) were reported to the
Ministry of Health. It is
assumed that the actual totals were higher, as not every attempted suicide is
identified and reported
as such.
(f) Dental health
- In
a number of surveys conducted from the late 1980s to the early 1990s, it was
found that the average number of teeth affected by
tooth decay among children up
to age seven ranged from 2.7 to 3.6; among children ages 1213 it ranged from 1.9
to 3.0. This is recognized
as a major area of concern. It should be noted
that, in recent years, efforts to fluoridate Israel’s drinking water have
increased;
by 1996, 47% of Israel’s population resided in towns that had
optimum levels of fluoride in their drinking water (Ministry
of Health, 1997).
It should be noted that there are no public dental insurance programs in Israel,
although there are some subsidized
clinics.
(g) Traditional customs that may affect a child’s
health
- Although
no definite information exists on its prevalence, female circumcision is
apparently an accepted practice among a number of
Bedouin tribes in southern
Israel. Recently, a bill was proposed to forbid female circumcision. Almost
100% of the country’s
Jewish and Moslem newborn males are circumcised for
religious reasons. Some Christian infants are
circumcised for health reasons. Most circumcisions are conducted by ritual
circumcisers, in some cases with medical supervision.
Injuries to the
child’s health due to circumcision are apparently rare. Nevertheless,
there have been calls to raise the
standards for licensing, training and
supervising ritual circumcisers.
2. Health and preventive services for children
- This
section will examine the extent to which Israel’s health system complies
with the Convention’s stipulations for meeting
the health needs of
children, and the extent to which health services are accessible to
children.
(a) The legal and organizational status of the health system
in Israel
- Health
services in Israel are provided under the National Health Insurance Law, which
was first implemented in 1995. However, the
existing health system can trace
its roots to the 1920s, well before the founding of the State in
1948.
- Before
National Health Insurance Law 1994, 97% of Israel’s population had health
insurance coverage through one of four sick
funds (Rosen, 1994). According to
estimates, between 200,000 and 300,000 people (including 90,000 children)
did not have health
insurance, some because they could not afford it, and others
because they preferred private insurance. Health services, as well
as health
insurance, were provided by Israel’s four sick funds, which were
established prior to 1948. The services provided
by the sick funds were
financed by membership fees, payments by employers, and government subsidies.
The Ministry of Health supervised
the provision of services, and itself provided
some of the country’s hospital, public health, preventive, mental health,
and
long-term care services.
- The
National Health Insurance Law stipulates that all of Israel’s residents
are eligible for health services based on principles
of justice, equality, and
mutual assistance. The law mandated the provision of a basket of health
services, which are largely provided
by sick funds non-profit corporations
whose income is used to provide these services. The government finances health
services,
primarily through an earmarked, progressive tax paid by all residents.
Nonetheless, non-payment or late payment does not exempt the
sick funds from
their obligation to provide health services. Sick funds are forbidden to reject
applicants on the basis of age,
health status or place of employment. The law
further stipulates that health services must be provided while maintaining human
dignity
and the patient’s right to privacy and medical confidentiality.
Residents age 18 and over must register themselves and their
minor children with
a sick fund of their choice. Sick funds receive payment from the government for
each individual member, regardless
of his family’s income. An age
coefficient sets a higher rate of payment for preschool children and the
elderly, who make
greater use of health services. This was meant to give the
sick funds an incentive to address the needs of large, low-income families,
many
of which are minorities.
- Following
public debate, the Knesset finance committee allowed sick funds to charge their
members supplemental fees, so as to increase
competition and curb the wasteful
use of health services. People with low income are exempted from paying
supplemental fees, although
the exemption does not cover the entire low-income
population especially large families in which the head(s) of the household are
employed. This arrangement gives the sick funds an incentive to serve
populations that can afford to pay the supplemental fees.
The implications of
this for children have yet to be studied.
- Studies
conducted following the implementation of the National Health Insurance Law
revealed that 40% of the respondents sensed an
improvement in health services
(Berg et al., 1996, 1998; Farfel et al., 1997). (A small proportion reported
sensing a decline in
health services, while the remainder sensed no change.)
Arab respondents reported the most significant improvement, corroborating
findings regarding the increased competition among sick funds in development
towns and Arab towns and villages.
- Under
section 6a of the law, the basket of services must cover the following areas of
health service:
1. Individual preventive care and health education
2. Medical diagnosis
- Ambulatory
medical care, including psychiatric care, whether in a clinic, at home, or in an
institution (e.g., old-age home, day care
center)
4. Acute, psychiatric, and psycho-geriatric hospitalization, and chronic
nursing care
- Rehabilitation,
including medical and psychological rehabilitation, physical, speech, and
occupational therapy, and social work in
the area of speech
6. Medications
7. Medical instruments and assistive devices
8. Preventive dental care for children up to an age specified by
regulations
9. First aid and transportation to a hospital or clinic
10. Medical services at work
- Medical
and psychological care for addicts and alcoholics undergoing rehabilitation.
Some aspects of the law are still being implemented.
- In
1998, the national expenditure for health was 8.4% of Israel’s Gross
Domestic Product, compared to 7.5% in 1991. Health
services are provided
through two large sub-systems of equal size: the ambulatory system (i.e.
clinics and preventive services),
and the hospital system. Community health
services are provided by the sick funds through neighborhood clinics. At the
end of 1997,
there were 3.8 physicians per 1,000 residents in Israel one of the
highest ratios in the world (Kop, 1999).
- In
1995, Israel had 15.7 pediatric beds in general hospitals per 1,000 children age
14 and under (Ministry of Health, 1998). A number
of years ago, a
children’s hospital was established in central Israel; it also serves as a
multi-regional center. Nevertheless,
there was a decline in pediatric beds,
hospital days, and the average length of hospital stay as a result of the
system’s efforts
to transfer pediatric care to clinics in the community.
As part of this trend, sick funds have established child health centers,
which
are staffed by pediatricians, and various hospitals around the country have
established special children’s centers to
treat children at risk
(e.g., the Child Welfare Unit at the B’nei Zion Hospital in Haifa).
In addition, sick funds have established
a system of after-hours emergency
services in the community, which they hope will reduce public reliance on
emergency rooms. Although
this service is provided for a fee, children pay less
than do adults.
(b) Preventive services
(i) Preventive services for young children
- As
noted elsewhere in this report, family health centers attend to the welfare of
pregnant women and children from birth to age five,
offering pre-natal
examinations, inoculations, early detection of physical and emotional
disabilities, health education, and counseling.
In addition, they identify
families that are unable to provide proper care for their children and refer
them to the social welfare
system. There are about 1,000 such centers
throughout Israel, most of them under the purview of the Ministry of Health or
the municipalities,
and some under the purview of the sick funds. Family health
centers are staffed by nurses, gynecologists and pediatricians. Most
routine
work is performed by the nurses, who have been trained in public health. One
nursing position is budgeted for every 180
infants born annually in a
center’s jurisdiction, such that nurses are responsible for pregnant women
and a total of about
600 infants and young children newborn to age five.
Service is universal and contingent upon payment of a health fee that covers
part of the cost of the service. Parents who are unable to pay may obtain an
exemption. Family health centers are located in and
are accessible to the
community. Most of the nurses become acquainted with the families during
pregnancy and the early stages of
child development. Families perceive these
centers to be a source of support, and nearly the entire population uses them.
It is
estimated that 95% of all families of child rearing age visit a family
health center from the beginning of pregnancy through a child’s
first two
years of life; the rates of use decline after a child has reached the age of two
and a half.
- Family
health centers provide a pregnant woman with preventive care by monitoring her
weight, blood pressure, urine, and blood count;
screening for birth defects; and
counseling her regarding nutrition, smoking, and preparation for birth and
motherhood. Preventive
care for the infant includes inoculations, nutrition
counseling, testing and counseling concerning child development, identifying
hearing and vision problems, and health education.
- In
1997, between 92% and 95% of all two-year-old children received their four
primary inoculations at a family health center. Since
some children are under
the care of a private clinic, it is assumed that the actual rate of inoculation
is even higher. The rates
of inoculation were similar among Jews and
Arabs.
- When
developmental problems are suspected or identified by a center’s primary
care physician or nurse, the children are referred
to a center for child
development. Centers for child development offer early diagnosis, counseling
and care for children up to age
five (and, in special cases, older children) who
may have a developmental or functional disability. Their multi-professional
staffs
provide diagnostic and paramedical services, and sometimes support and
training for parents. Children over age five who need care
are usually referred
to a special education or other medical framework.
(ii) Preventive programs for special
populations
- Programs
for New Immigrants: From the beginning of the 1990s to the end of 1998,
some 900,000 immigrants, about 230,000 of them children,
arrived in Israel
from the former Soviet Union and Ethiopia. A number of special programs were
developed for these immigrants.
Health programs for women and elderly people
from the former Soviet Union were prepared in Russian, and family planning
clinics were
provided with additional, Russian-speaking staff.
- A
significant number of Ethiopian immigrants arrived in the 1980s, and an
additional group of immigrants from Ethiopia arrived in
1992. In all, there are
some 70,000 Ethiopian immigrants now in Israel, approximately 60% of them under
age 18. As most of this
population came from rural areas in Ethiopia, special
effort was required to acquaint them with the Israeli health system and teach
them health habits suited to their new environment. This effort was stepped up
in the 1990s on the initiative of the Ministry of
Health and JDC-Israel,
which developed a number of programs that were operated through district health
bureaus and family health
centers. Outreach to the Ethiopian immigrant
community using “facilitators” fluent in Amharic and familiar with
culturally
sensitive terminology that the immigrants could understand emphasized
preventive services for pregnant women and children. Health
education programs
are now being implemented by skilled individuals from the Ethiopian community
who have been in Israel for a decade,
speak both Hebrew and Amharic, and
understand Ethiopian culture. These programs increase the response rate to
inoculations and preventive
care, and are changing health behaviors
(e.g., improving nutrition, preventing home accidents), especially among
children.
- As
the proportion of people with the AIDS virus is relatively high among Ethiopian
immigrants, efforts have been made to prevent contagion
within the community and
to treat those who are HIV-positive. Educational materials have been prepared
in Amharic, and Ethiopian
immigrants have been trained to instruct youth and
adults. In 1997, the decision was made to use “facilitators” from
the Ethiopian immigrant community to make contact with Ethiopian immigrants who
have AIDS or are HIV-positive; the facilitators help
these patients communicate
with the professional staff at AIDS treatment centers and teach them how to keep
from spreading the disease.
In addition, funds have been invested in a health
education program on AIDS used in schools and the army, and seminars on
Ethiopian
culture that are meant to help teachers, social workers, physicians
and nurses serve this population more effectively.
- Programs
for Bedouin: Special programs have been developed for the Bedouin population,
the majority of which resides in the south
of Israel. One noteworthy project is
an educational program sponsored by the Ministry of Health, which aims to reduce
the birth
rate among very young women and to reduce infant mortality among risk
groups. The project attempts to increase awareness of the
dangers inherent in
intra-family marriage (which is prevalent in this population), the need to
monitor pregnancies, and the need
to inoculate children.
(iii) Additional programs
- Health
education programs on preventing accidents in the home, at school and on the
roads are conducted at family health centers.
In addition, some of the centers
offer enrichment programs, programs to improve children’s cognitive
development, and parenthood
preparatory programs, in cooperation with social
welfare services. Special programs designed to increase the centers’
effectiveness
in their work with families and children at risk are presently
being implemented nationwide.
(iv) Promotion of breastfeeding
- The
State of Israel is a cosignatory of the 1990 WHO- and UNICEF-sponsored
“Innocenti Declaration”, whose aim is to promote
breastfeeding. In
compliance with the declaration, Israel has placed limits on advertisements for
and efforts to market baby formula
in maternity wards, although these are
apparently not strictly enforced. Between 1994 and 1996, the Department for the
Mother and
Child of the Ministry of Health conducted a comprehensive survey of
hospital support for breastfeeding. The survey revealed that
only eight of
the 29 hospitals exceeded the international average score for
following the recommendations of the Innocenti Declaration.
On the other hand,
the survey found that two-thirds of the mothers were allowed to hold their
babies immediately after birth. All
of the hospitals reported having
informational material on breastfeeding, though it was not of uniform quality
and contained inaccuracies.
Also, hospital counseling and instruction for
mothers was found to be ineffective. An independent association at the
Interdisciplinary
Center for Child Education, Health and Safety at the
children’s hospital in central Israel is working to improve the situation
by preparing a kit for nurses with the latest information on breastfeeding.
Also, a WHO course on breastfeeding has been approved
and will be taught to
public health nurses. A special committee at the Ministry of Health is
formulating a change of policy on breastfeeding.
The Ministry is also working
to ensure that there is a salaried breastfeeding counselor in every
hospital.
- In
1998, the National Commission on Child Medicine, which operates within the
Ministry of Health and examines policy concerning children’s
health,
established the committee for the promotion of breastfeeding, whose goal is to
encourage breastfeeding, in part by creating
conditions that will make it easier
for mothers to breastfeed their children (e.g., longer maternity leave,
private rooms in work
places where mothers can pump milk,
etc.).
(v) Preventive services for school children
- Health
services for elementary and secondary school students in Israel are financed by
the State. The Supreme Court has ruled that
the State may hire contractors
through public tenders to provide these services.
- Health
services are provided in elementary schools by public health nurses and
physicians. Officially, one public health nurse is
employed for every 1,800
students, and one physician for every 6,000 students. In elementary schools,
the nurses conduct routine
examinations, such as testing vision and hearing and
measuring height; give inoculations; and teach nutrition, personal hygiene,
and
sex education. Although the Ministries of Education and Health stipulate that
health education lessons be held weekly, a shortage
of nurses impedes
this.
- The
health services provided in secondary schools are primarily educational and
focus on preventing drug and alcohol addiction and
communicable diseases such as
AIDS, and on safety and accident prevention.
- Despite
government financing, parents are charged a fee for dental health services.
There are reports, however, that local authorities
with populations of limited
means and little awareness of the importance of preventive dentistry find it
difficult to collect this
fee; consequently, services are not
provided.
- In
addition to the health services provided at schools, preventive services are
offered to adolescents through specialty service centers,
which are financed by
the Ministry of Health, social welfare agencies, and Clalit Health Services.
These centers specialize in adolescent
health and provide sex education, medical
testing, and treatment of problems that arise during adolescence, such as acne
and weight
problems.
- In
recent years, youth counseling centers have been established throughout the
country to provide youth with instruction, counseling
and referral in a variety
of areas, including health.
(c) Psychiatric services
- Psychiatric
services, including diagnosis, counseling, psychotherapy and parental guidance,
are provided by mental health clinics
for the child and adolescent, or by
hospital outpatient clinics serving special areas. The clinics usually operate
free of charge
or charge a nominal fee. Nevertheless, professionals have noted
serious gaps between available psychiatric services and the needs
of the
community. Moreover, it has been an issue of some debate that existing clinics
primarily serve middle class families, and
are unavailable to those who truly
need them or are in distress. This is primarily because these clinics do not
reach more problematic
populations, including families that do not cooperate or
that have multiple problems. In recent years, the Ministry of Health has
made
an effort to improve psychiatric services for children and youth. For
example, it has established two child psychiatric centers
in two cities in the
south, to remedy the lack of services in this region. This represented a
commitment to interorganizational
cooperation, as well as to work with at-risk
and distressed populations.
- Every
year, a small number of children are hospitalized in special wards at
psychiatric hospitals (in 1998, 230 children were admitted
to psychiatric
hospitals). In recent years, following criticism over the unnecessary
hospitalization of youth and the lack of alternative
frameworks, health and
social welfare services have begun to cooperate in establishing outofhome
frameworks as an alternative to
hospitalization.
(d) The accessibility of services
- The
physical accessibility of services is expressed in data on the geographic
distribution of physicians in Israel, which greatly
corresponds with the
distribution of hospital beds and medical infrastructure in general. Data from
the Central Bureau of Statistics
reveal that the north and south of the country
have a smaller number of physicians per 100,000 population, and that children
newborn
to age four in these regions visit physicians less frequently than do
their peers elsewhere in the country. The findings of an analysis
conducted in
1996 support the assumption that the number of physician visits is related to
the availability of services, and that
these two variables are linked to income
or the socio-economic status of a given town or region.
Table 36
Distribution of physicians and number of physician
visits by children
newborn-age 4 in 1993, by area of residence
|
Children’s visits to a physician during a three-month period, per 100
000 population
|
Number of physicians per 100 000 population
|
Jerusalem
|
290
|
485.4
|
North
|
378
|
266.0
|
Haifa
|
436
|
482.7
|
Central Israel
|
531
|
475.0
|
Tel Aviv
|
543
|
517.3
|
South
|
379
|
323.9
|
Source: Kop, 1997.
- Data
from the early 1990s reveal gaps between health services in the Jewish and Arab
sectors, for indices such as the number of physicians
per 100,000 population and
the level of services. However, it should be noted that since 1993, the
Ministry of Health has earmarked
funds for the construction of new family health
centers in Arab towns and villages, and for “closing the gap with the Arab
sector” in preventive care. As noted, one of the main implications of the
National Health Insurance Law was an increase in
the incentive to provide
services to low-income populations; a survey of sick fund members on the
improvement of services since implementation
of the National Health Insurance
Law found the greatest level of improvement reported by the Arab
population.
- One
group with particular problems gaining access to medical services is that of the
Bedouin who reside in villages that are not recognized
by the government. Only
four clinics serve the nearly 50,000 people who reside in these villages. Not
one of the villages one-quarter
of whose population are children age four or
less has a family health center. Under contract to the Ministry of Health, the
Galilee
Society The Arab National Society for Health Research and Services has
been operating a mobile clinic in these villages; however,
the Ministry of
Health has not approved extension of the contract. In response, a petition has
been filed with the
Supreme Court, in its role as a high court of justice, to force the State to
construct permanent clinics. The Ministry of Health
has countered that 84% of
the infants in these villages receive preventive medical care, and that
residents can receive services
at centers located six kilometers away. The
Ministry further responded that because the villages are illegal, it is under no
obligation
to provide services within their boundaries, and that the residents
therefore have no legal basis to claim discrimination. The Supreme
Court
justices refused to accept the claim that children need not be provided with
preventive medical services merely because they
reside in unrecognized
settlements. Following the court’s decision, the Ministry of Health
agreed to construct six family
health centers in these villages; however, this
has yet to be done. The Ministry of Infrastructure has begun efforts to find a
comprehensive
solution to the problems of these villages, which will presumably
also solve the problem of provision of health services.
- An
additional problem in implementing the National Health Insurance Law concerns
the children of residents of East Jerusalem (whose
population is Arab). The
1997 report of the Ombudsman for the National Health Insurance Law lodges a
number of complaints concerning
children, especially in cases where one parent
resides in East Jerusalem and the other in territories controlled by the
Palestinian
Authority. While the National Health Insurance Law covers all
residents of the Israel, approval of residency by the National Insurance
Institute can take time (an average of 59 days, according to the
ombudsman’s report); in the interim, the child does not receive
health
services. It is the opinion of the ombudsman that the sick funds must provide
health care during this period, particularly
for children, and especially if
failure to provide health services endangers the child’s life. It should
be noted that in
1997, the ombudsman’s office intervened in a number of
cases in which children’s lives were endangered due to a lack
of medical
care; ultimately, care was provided free of charge. The ombudsman favors the
long-term solution proposed by the head
of the Ministry of Health’s
Division of General Medicine, according to which a child born to a mother who
resides in East Jerusalem
and a father who resides in an area controlled by the
Palestinian Authority will automatically be eligible for all services provided
by the mother’s sick fund, including preventive services, until his
residency is approved by the National Insurance Institute.
In response to a
petition by several civil rights organizations, the Supreme Court recently
instructed the National Insurance Institute
to make administrative arrangements
that will enable the children of such parents to receive medical care from
birth.
- In
recent years, a great many foreign workers have come to Israel. Some of them
live and work in Israel legally, while others do
not. It is estimated that they
have a total of between 2,500 and 3,000 children, who live with them
in Israel. The National Health
Insurance Law does not cover these workers or
their children, regardless of whether they are in the country legally or
illegally.
Some workers are insured by their employer, through a commercial
insurance agency. Many of their children have no health insurance
whatsoever;
medical care exclusive of emergency treatment is usually provided for fees that
the workers cannot pay. Family health
centers provide preventive treatment to
foreign workers who are mothers, and their children. In Tel Aviv, where most of
the foreign
workers reside, Physicians for Human Rights has established the
country’s first clinic for foreign workers. Family physicians,
pediatricians and general practitioners, as well as hospital and sick fund
nurses, volunteer their time at this clinic, which is
open three days a week and
offers low-cost primary medical care to legal and illegal foreign
workers.
- Human
rights organizations, including the National Council for the Child, Physicians
for Human Rights, and the Association for Civil
Rights in Israel, have
asked the Minister of Health to use his discretionary power to extend national
health insurance coverage to
the children of all foreign workers. They believe
the Minister should declare that the rights accorded by law extend to all
children
born in Israel, for as long as the child resides in the country,
regardless of his parents’ status, as well as to any child
who
stays in Israel longer than three months.
- In
July 2000, the Foreign Workers’ Law took effect. Under this law, the
Minister of Health must define a basket of services
that insurance companies
will be required to provide foreign workers. Guidelines for defining the basket
have yet to be formulated.
A contractor has been chosen to provide health care
to the children of foreign workers. A Knesset committee is monitoring the
provision
of health care to foreign workers and their children, and will
determine if additional steps need to be taken.
3. Environmental factors that affect health
- Environmental
regulation is the responsibility of the Ministry of Health and Ministry of the
Environment.
(a) Water quality
- Virtually
every home (99.8%) in Israel is connected to the country’s central water
network. Great effort is invested in preventing
water contamination, with
monitoring that includes routine examinations for salinity and chemicals
according to standards recommended
by the WHO. In recent years there has been a
downward trend in the percentage of bacterially contaminated drinking water
samples,
from 7.6% of all samples in 1990 to 2.3% in 1995 (Ministry of
Health, 1998b).
- The
individual dwellings of the 50,000 Bedouin who reside in unrecognized
settlements are not connected to the water system. Every
Bedouin encampment
that requests water is linked to the national network; residents pump water from
central holding tanks and bring
it home by automobile or camel, or on foot. The
following steps are taken to avoid water contamination in this
region:
− Routine testing is conducted
− Running water is provided in every Bedouin school
− Pamphlets on the prevention of water contamination are
distributed.
- The
issue of drinking water will be addressed as part of the initiative to find a
comprehensive solution to the problems of unrecognized
Bedouin
settlements.
(b) Air pollution
- Awareness
in Israel is increasing of the harmful effect that the release of pollutants
into the air has on health, especially that
of children. The level of air
pollution is not uniform nationwide: Between 1986 and 1993, a number of
geographic areas were found
to have exceptionally high levels of sulfur dioxide,
nitrogen dioxide, ozone and ash. In 1994, new national policy regarding air
quality was introduced, including the legislation and enforcement of air quality
standards, continuous monitoring of air quality,
and a reduction in sources of
pollution. As of 1994, 63 monitoring stations were in operation; however, this
was not sufficient
basis for a national air pollution program.
Consequently, Israel is formulating plans for 50 additional monitoring
stations and
a central data base (Ministry of Health, 1998b).
4. Considering the views of the child in the medical
process
- According
to article 12 of the Convention, “a child capable of forming an opinion
should be given the right to freely express
it for any issue concerning him,
with due weight being given his opinion based on his age and level of
maturity” (see Chapter
IV).
Medical ethics
- While
ethical guidelines issued by the Israel Medical Association cover all human
beings who require medical care, including children,
they also specifically
address children. Section 32 of the guidelines stipulates that, in an
emergency, a physician must provide medical care to a minor even without the
express permission
of his parent or guardian, and must consider the
minor’s opinion if he is able to express it. Section 33 of the guidelines
requires a physician to consult with the authorities, and in exceptional
circumstances to use his own judgment
even if he cannot consult with the
authorities, if a parent or guardian refuses to allow a minor to
receive treatment and the physician
is convinced that non-treatment will
endanger the minor’s life.
- The
Israel Medical Association helped draft a proposed declaration on the rights of
the child patient, which was sent to the World
Medical Union. The
declaration, based on the UN Convention on the Rights of the Child,
emphasizes a child’s right to life
and health, and respect for his views
regarding medical procedures.
C. Article 26 of the Convention - Social security
- During
the 50 years since its establishment, Israel has gradually developed as a
welfare state. During this period, Israel has managed
to build an extensive
system of social security and income support, as well as a national system of
welfare services in the framework
of the health and education systems, to meet
the needs of vulnerable populations. These are described in the various
sections and
chapters of this report.
- This
section will examine the degree to which children in Israel benefit from the
right to social security, while taking into consideration
the situation of the
child and that of the people who are responsible for his livelihood, according
to article 26 of the Convention.
In this section,
we will describe
the social security and other mechanisms that secure a reasonable standard of
living for children. (See Chapters
VII and IX for further information about
services and institutions that help working parents care for their children
(article 18(3)
of the Convention).)
1. The National Insurance Institute
- The
National Insurance Institute is a statutory corporation charged with
implementing the National Insurance Law [Consolidated Version]
1995, and other
laws that grant residents of the State social benefits and other transfer
payments. The National Insurance Institute
collects social security payments
from the public, and pays benefits to people eligible for them by law. Some of
these are short-term
benefits meant to replace the salary of a person who
temporarily finds himself outside the work force (whether because he has been
fired or injured on the job, has given birth, or is doing reserve army duty).
Others of these are long-term benefits intended to
ensure a minimum standard of
living for people who have been forced to permanently leave the work force
(because of age or disability),
surviving relatives who have been left without a
primary breadwinner, and families that cope with the economic burden imposed by
raising children. Benefits that replace salary are set as a (fixed or
progressive) proportion of the salary of the beneficiary prior
to the event that
made him eligible for the benefit, such that its level changes from one
individual to the next. Long-term benefits,
in contrast, are set as a certain
proportion of the average market wage, with the exception of child allowances,
which are set at
fixed rates that are linked to the Consumer Price Index. The
level of these allowances depends on the composition of the family.
Families of
limited means, whose allowance is very low or who do not meet the eligibility
criteria for this benefit under the National
Insurance Law, are eligible for an
income support benefit under the Assurance of Income Law 1980. This law was
intended to be an
economic safety net for those needy who cannot, either by
themselves or with the help of some benefit, meet their basic needs. The
law
created a continuum of eligibility for receipt of payments from the social
security system, and ensures a minimum income for
every family in Israel, whose
amount is set as a fixed percentage of the average wage as determined in the
National Insurance Law.
- Social
security payments are collected from salaried employees, from employers, from
the self-employed, and from those who are not
employed. The government also
participates in some branches of insurance and finances in full the benefits
that are paid not under
the National Insurance Law, for which social security
payments are not collected.
- In
1999, collection from the public for the various branches of social security was
4.5% of the Gross Local Product. During that
year, the primary branch of the
National Insurance Institute was that of aging and surviving relatives (34% of
the Institute’s
payments were to recipients of old age and
survivors’ benefits). Children’s allowances were second in size,
reaching
18.8% of all benefit payments in that year. (All of the data in this
section were taken from the National Insurance Institute Statistical
Annual,
1999.)
2. The system of benefits
- Below
we will describe the benefits relevant to the social security of children,
including the conditions of eligibility, the populations
that benefit, and the
percentage of recipients. Some of the benefits are paid directly to families
for the support of children;
others are paid to the person eligible due to
temporary or permanent loss of salary, but are also intended to support his
dependents,
including children. We will then discuss eligibility for social
security and realization of rights. Lastly, we will address the
degree to which
all benefits, alongside other arrangements, help children and their families to
maintain a basic standard of living.
- Most
benefits are paid independent of income on a universal basis. This is for fear
of the disturbance of social solidarity caused
when the entire population makes
social security payments, but only some of the population receive benefits; the
affront to dignity
caused when social security, health and welfare services are
limited to the poor only; and the fear that the necessity of meeting
an income
test in order to be eligible for benefits will prevent the weaker strata of
society, which are most in need of benefits,
from realizing their right to
them.
(a) Benefits directly related to children
- Children’s
allowance: The children’s allowance is a monthly allowance paid to a
family according to the number of children
in it. The allowance is determined
according to benefit points assigned per child. At the end of 2000, a law was
passed that increased
the number of benefit points per child for families with
four or more children, beginning with the fourth child. This change has
aroused
much public debate. Since 1987, the benefit points have been updated for the
full increase in the Price Index at the beginning
of every year (January) and
whenever a cost of living increase is paid to all of the employees in the
market. In order to ease the
burden on families, the hospital automatically
informs the National Insurance Institute of every birth; payment of the
children’s
allowance is transferred to the mother’s bank account.
Since close to 100% of the mothers in Israel give birth in the hospital,
this
mechanism ensures maximum fulfillment of the right to the benefit. In 1999,
about 890,000 families received children’s
allowances every month, for
2,000,000 children.
- Disabled
child allowance: This allowance is intended for families that care for a
disabled child, to ease the burden of personal
and nursing care. The levels of
the allowance are determined by the child’s level of dependence on his
parents in order to
function, the child’s age, school
attendance/education, and the type of illness or disability from which he
suffers. About
14,100 children received this benefit in 1999. (See the
section on children with disabilities, above.)
- Maternity
insurance. As part of maternity insurance, women who have given birth are
entitled to the following benefits:
(a) Hospitalization grant
this is meant to cover the expenses of the birth, and of the hospitalization of
the mother and baby (including
premature babies); it is paid directly to the
hospital. A woman who gives birth abroad is also eligible for the grant, which
is
paid directly to
her after she has filed a claim. A woman who is not a
resident of Israel but who has worked in
Israel, or whose spouse has worked in Israel for at least six months prior to
the birth, and who gave birth in Israel, is also eligible
for this grant. The
sum of the payment is updated according to the cost per hospital day, which is
determined by the Ministry of
Health;
(b) Maternity benefit this
benefit is paid for 20 months to families in which three or more children are
born during one birth (that
is, triplets or more), in order to help the family
cope with economic hardship. The mother is eligible for a monthly maternity
benefit
for nine months;
(c) Equipment grant this grant is intended to
cover initial equipment for the baby, and is paid directly to the mother. The
grant
is 20% of the average wage. When two or more children are born during one
birth and remain alive for a period of time determined
by law, the equipment
grant is higher: for twins, 100% of the average market wage, and for each
additional child, 50% of this wage;
(d) Maternity leave allowance this
is an income replacement allowance. It is meant to compensate the working
mother for the loss
of wages during her maternity leave, which she is required
to take under the Employment of Women Law. Women who are eligible for
this
allowance are mothers who work for a salary, who are self-employed, or who are
undergoing vocational training and for whom,
during the period prior to the
birth, social security payments were made for periods of time determined by law.
The maternity leave
allowance is paid for six or 12 weeks, depending upon the
length of time a woman paid into social security prior to taking maternity
leave. As of October 1994, maternity leave allowances were 75% of a
mother’s average daily wage during the three months that
preceded her
cessation of work. Since November 1994, the maternity leave allowance has been
paid according to 100% of a mother’s
average daily wage during the three
months that preceded her cessation of work, minus income tax, social security
and health tax
payments. As a result, the real level of the average maternity
leave allowance per day in 1995 was 53% higher than it was in
1994;
(e) Pregnancy benefit this is an income replacement benefit,
which is intended to support employed women who for reasons related
to their
pregnancy are forced to cease working for 30 days or more and for whom no social
security payment is being made by their
employer or any other agent. The rate
of the benefit is the woman’s average wage during the three months that
preceded her
cessation of work.
- In
1999, hospitalization and equipment benefits were paid to 129,000 mothers.
During that year, 65,000 women received a maternity
leave
allowance.
(b) Benefits for eligible persons and their
dependents
- Unemployment
benefits. Unemployment insurance grants eligibility for unemployment benefits
to people who worked for a minimum of
six months during the year that preceded
their unemployment, or for a year and a half prior to their unemployment.
Claimants are
eligible to receive unemployment benefits for a maximum of 138
days, or 175 days if they are age 45 and over or have at least three
dependents.
The amount paid per day is calculated at rates determined by law on the basis of
the average daily wage of the beneficiary
during his last 75 days of
employment.
- In
1998, about 112,000 children lived in families in which at least one of the
parents received unemployment benefits. These children
represent 5.4% of all of
the children in Israel. In recent years, there has been an increase in the
percentage of children who live
in families that receive unemployment
benefits.
- Work
injury benefits. Work injury benefits grant an individual who has been injured
on the job the right to receive benefits based
on the outcome of the injury.
Also in this framework, a benefit is paid to relatives of people who were killed
on the job, if those
relatives were dependent on the deceased for their income.
The full amount of this dependents’ benefit is 75% of the deceased’s
salary. The partial amount of this benefit depends on the number of dependents:
A widow with three children is eligible for the
full benefit.
- General
disability pension. The disability pension is paid to individuals who as a
result of a physical, mental or emotional disability
can not and do not earn a
salary that exceeds 25% of the average wage. A supplement of 10% is provided
for each of the two first
children.
- Survivors’
pension. This pension is paid to survivors of individuals who have died. The
rate of the pension is paid as a fixed
percentage of the average wage, according
to the composition of the family: A widow or widower with one child receives
16% of the
wage; an additional 7.5% is paid for each additional child. A child
who does not have parents, or whose living parent does not live
in Israel,
receives 10% of the wage. If both of his parents have died, the child is
eligible to receive two survivors’ pensions.
In addition, living expenses
are paid at a rate of between 6.5% and 9% of the average wage to orphans who
spend the majority of
their time in secondary school or vocational
training.
- Income
maintenance. Income maintenance is intended to be a safety net for individuals
and families whose level of income, with or
without the other income replacement
benefits, does not enable them to maintain a minimal level of existence. This
benefit is provided
under the Assurance of Income Law 1980. Among those
eligible for the benefit are families with no wage earner, and families whose
wage-earners work for low wages. Eligibility for the benefit is conditional on
both a means test and an employment test: Recipients
of the benefit are
required to make an effort to become integrated into the work force. Only women
with young children (under age
7) are exempt from the employment test. Pregnant
minors and orphaned or neglected children are also eligible for this benefit.
The benefit rate is dependent on family size and composition. The maximum
benefit paid to a widow(er) with at least two children
is equivalent to 52.5%
of the average wage.
- In
1998, 190,488 children (9.2% of all of the children in Israel) lived in families
that received an income support benefit. Forty-eight
percent of these children
lived in families that received this benefit because they had no wage earner.
About 21% of them lived
in families that received this benefit because of low
wages. Between 1990 and 1998, there was an increase of 133% in the number
of children living in families that receive income support benefits, which is
explained primarily by the mass immigration during
this period.
- Alimony
insurance. The Maintenance (Assurance of Payment) Law 1972 ensures payment to
women who are divorced, separated or in other
circumstances, and to whom the
court has awarded alimony but who are not receiving said alimony because the
individual required by
law to pay it is not fulfilling his obligation. A child
is also eligible for this benefit if an alimony ruling has been made in
his
favor and he is not in the custody of his mother, and his maintenance is not
being paid by the State or a local authority. The
rate of payment is determined
as in the alimony ruling, but is not to exceed the amount set in the
regulations. The rate of alimony
payments set in the regulations is equivalent
to the rate of the income support benefit for widows, depending on the number of
children
in her custody.
(c) International conventions
- Israel
is a party to multilateral international conventions with most of the European
countries, which ensure the payment to residents
of those countries who migrate
from one country to another, and in some cases to stateless refugees. In
addition, Israel has signed
a multilateral convention on the preservation of the
right to benefits of migrants, and a multilateral convention on the legal
equality
of citizens and non-citizens in social security.
3. Recent changes in benefit payments
- Benefit
payments often undergo changes. Some of these changes are a result of the
desire to reduce the public expenditure involved
in payment, while others are
directed at ensuring the efficiency of the benefits in maintaining a basic
standard of living for the
entire population. Following are the primary changes
that have been made in recent years.
(a) Elimination of the means test for the children’s
allowance
- In
1985, the decision was made that families with up to three children whose level
of income was above a certain threshold would not
receive a benefit for their
first child, and in 1990, the decision was made to eliminate this benefit
for the second child, as well.
In 1993, the payment of the benefit to all small
families was renewed, without a means test. As a consequence, in that year the
number of families and children who received such benefits increased by 50%.
(b) Equalizing the children’s allowance for people who
did not serve in the army
- In
the past, a supplement to the children’s allowance was paid to families in
which at least one member had served in the army.
The “eligibility
points” provided for the fourth child and additional children thereafter
were higher for families in
which at least one member had served in the army.
Since most of the Arab population is exempt from military service, the benefits
that were paid to that population were lower than those paid to the Jewish
population. In addition, the families of new immigrants,
some of which
(especially those from Ethiopia) had many children, also did not benefit from
the supplement.
- In
January 1994, a process was begun of unifying the children’s benefits for
all families that receive them, unconditional upon
military service. This
change, which was completed in 1997, equated the level of the benefit for
all families, by increasing the
level of the benefit paid to about 100,000
families with three or more children (for example, a family with four children
now receives
a benefit that is 60% larger than in the past).
(c) Benefits to low income groups
- In
recent years, legislative efforts have been made to reduce the extent of poverty
among children by increasing selected benefits.
Following the Reduction of
Poverty and Income Disparity Law 1997, and the Reduction of Poverty
(Supplementary Measures) Law 1995,
benefit points were increased for the fourth,
fifth and sixth child in a family, and supplements were increased for the first
and
second child in about 50,000 “special” families (e.g., in
which someone was disabled, the woman was receiving alimony,
there was only one
parent). In addition, payment of the supplement for a child, which is granted
to recipients of the survivor’s
pension, was expanded to each child
(without limitation on their number), and disability benefits were increased for
approximately
90,000 families of disabled persons. Finally, the level of
benefits paid to single-parent families in which the parent is not defined
as
being the sole parent (e.g., women who are separated, or who have been
abandoned, or whose husbands are in prison) were brought
up to the increased
rate, such that almost all (de jure and de facto) single-parent families became
eligible for an income supplement
at the increased rate. As a result,
about 3,000 single-parent families benefited from a supplement to
their benefit of up to 50%.
- As
noted, the children’s allowance is paid on the basis of “eligibility
points”, which are allocated to each child
in a family. The greater the
number of children in a family, the more “eligibility points” the
family receives, both
because of the large number of children and because of the
larger number of “eligibility points” allocated to each successive
child, beginning with the third child. One of the main problems with the
children’s allowance is its inability to maintain
its value over time,
relative to market wages, as it is linked to the Consumer Price Index and not to
the average market wage, like
the other benefits. Thus, its ability to maintain
a given relative income standard has declined very significantly. According to
data from the National Insurance Institute, in 1975 the value of an eligibility
point was 4.4% of the average wage, while in 1990
it was worth 3.0% of the
market wage, and by 1997 it was worth only 2.7% of the market
wage.
4. Additional mechanisms that ensure a minimum
standard of living for the employed
(a) Minimum wage
- The
system of ensuring a reasonable standard of living for employees (including
employees with children) is the minimum wage, which
was instituted in Israel by
the Minimum Wage Law 1987. The rate of the minimum wage is presently 47.5% of
the average market wage.
However, this law has not been sufficiently enforced,
and there are many employees who earn less than is stipulated by the
law.
(b) Tax breaks
- The
tax system in Israel is progressive. In addition, the tax system provides
discounts, dispensations, and tax breaks to working
women, single-parent
families, and so on.
D. Article 27(1)-(3) of the Convention - Standard of
living
- Below
we will examine the degree to which the State of Israel recognizes the right of
every child to a standard of living that is
adequate for his development, the
degree to which the mechanisms described in the previous section help ensure
this right, and the
degree to which additional steps are taken to assist those
who are responsible for the child, especially regarding nutrition, clothing
and
housing, as required by article 27, sections 1-3 of the Convention on the Rights
of the Child. We will also examine efforts to ensure this right to all segments
of the population.
1. Recognition of the right to an adequate standard of
living
- The
right especially that of children to an adequate standard of living has earned
recognition in Israeli law. A number of legislative
and administrative
mechanisms, among them the social security payments described above, are meant
to promise an appropriate standard
of living for all. The constitutional right
to dignity, under sections 2 and 4 of the Basic Law: Human Dignity and Liberty,
is commonly believed to subsume the right to a basic standard of living. Case
law
also recognizes the right to a minimum standard of living. Thus, for
example, the Supreme Court has ruled that causes that would
normally incur
non-payment of alimony to children, such as inappropriate behavior of children
toward parents, will not be upheld
if withholding alimony would deny the
children a basic standard of living. Nevertheless, to date, the right to a
basic standard
of living has not been explicitly grounded in
law.
2. Poverty
(a) Measuring poverty
- Poverty,
as a rule, and among children in particular, is increasingly recognized in
Israel as a social problem that must be addressed.
Data on poverty in Israel
have been collected and published since the 1970s by the National Insurance
Institute. An annual report
on the state of poverty is presented to the
government and garners extensive media coverage. Since the 1970s, Israel has
adopted
a relative definition of poverty that reflects the general standard of
living. According to this definition, a family is considered
poor when its
living conditions (as reflected in family income) are significantly inferior to
the accepted living conditions of a
society. Poverty is measured on the basis
of income; the means used to measure poverty do not take into consideration a
family’s
other financial resources or in-kind services provided by the
State or other agencies. The “poverty line” is defined
in Israel as
being 50% of the median net income per “standard” capita, based on a
scale that matches income to family
size, so as to facilitate comparison of the
standard of living of families of different sizes. (For example, according to
this scale,
two individuals are equal to two standard individuals, three
individuals are equal
to 2.65 standard individuals, and seven individuals are equal to 4.75
standard individuals.) A family in Israel is considered poor
when its income,
divided among the number of “standard” individuals in that family,
is below the poverty line for a standard
individual. Thus, for example, the
poverty line for a family of four is 62% of the median wage; a family of eight
will be defined
as living below the poverty line if its available income is
100.7% of the median wage.
- Measures
of poverty are calculated based on annual income surveys conducted by the
Central Bureau of Statistics. The population surveyed
includes the households
headed by an employed or unemployed person (but not households headed by someone
who is self-employed), in
urban settlements with a Jewish or mixed population of
2,000 or more residents. Up to 1994, the income surveys included settlements
with 10,000 or more residents. Beginning in 1995, the surveys were expanded to
include settlements with between 2,000 and 10,000
residents (many of which are
Arab). The population surveyed in 1995 encompassed about 88% of all of the
households in Israel (as
opposed to 80% of all households in
1994).
- Below
we present recent data on the extent of poverty among children in Israel, and
among specific groups of children. We then present
data on the effect of the
various mechanisms reviewed in the previous section on the reduction of
poverty.
(b) The extent of poverty among Israel’s children:
changes over time
- The
introduction of children’s allowances in the 1970s brought about a
dramatic reduction in the incidence of poverty among
children during that
period. About 8% of the children in Israel were living below the poverty line
in the mid-1970s. However, poverty
rates rose throughout the 1980s and early
1990s, reaching 23.2% by 1995. A decline was observed in the percentage of
children living
below the poverty line for the first time in 1996, when 21.4% of
Israel’s children lived below the poverty line (see Table
39). This trend
was ascribed to the implementation in 1994 of a government program to prevent
poverty, which included a change in
the payment of children’s allowances.
However, an increase in the percentage of children living below the poverty line
was
again observed in 1998, when it reached 22.8% of all children. This
increase was attributed in part to an increase in unemployment,
and in part to
changes in the method of income survey: As of 1997, income surveys included
smaller Arab villages, whose populations
are poor. Data for 1999, which were
just released, indicate that poverty among children has reached a new peak
(26%).
(c) The extent of poverty among different groups
- Table
37 presents the incidence of poverty among children in different groups in 1998.
As the Table indicates, the poverty rate is
particularly high among a number of
groups: Arab families, families with four or more children, and single-parent
families. For
years, the extent of poverty among new immigrants (who arrived in
Israel in or after 1991) was higher than in the general population.
However, in
1998 it was only 18.1% a smaller percentage than that in the general population
(although still slightly higher than
that of children in the Jewish
population, 16.3%).
- It
should be noted that between 1995 and 1996, there was a significant decrease in
the percentage of children in Arab families who
lived below the poverty line;
this was explained by the extension of benefits for families whose members had
served in the army to
families whose members had not served in the army, which
primarily affected Arab families. However, beginning in 1997, there was
again a
rise in the percentage of children in Arab families living below the poverty
line. As noted, this may be due in part to
changes in the method of income
survey.
Table 37
The incidence of poverty among children in
different groups in 1998 (in %)
|
Incidence of poverty among children
|
Total population of children
|
22.8
|
Families with four or more children
|
34.9
|
Single-parent families (1997)
|
36.5
|
Immigrant families
|
18.1
|
Arab families
|
42.7
|
Source: National Insurance Institute, 1999.
- Although
there is a wealth of data on the extent of poverty and its distribution among
various population groups, there is little
data on poverty’s implications
for and influence on the well-being of children and youth. For example, there
are limited data
on the extent to which poor children are precluded from
participating in the activities and social experiences that are accessible
to
the majority of children in Israel, or on the prevalence of undesirable
behaviors (such as involvement in crime) among poor children.
It is clear,
however, that poverty affects the welfare of children and families, and serves
as a background to other problems.
Existing data indicate that children from
families with low income are over-represented among those who suffer from abuse
and neglect,
underachievement and inability to attain a minimum level of
education, dropping out of school and involvement in criminal activity
(Dolev et
al., in Primak, ed., 1998).
(d) The effectiveness of mechanisms to reduce the extent of
poverty
- The
main reduction in the incidence of poverty is accomplished by transfer payments
(most of them social security benefits). In addition,
since poverty is defined
relatively, progressive taxation improves the relative status of the poor. In
this section we will examine
the efficiency of transfer payments and taxes in
the reduction of the extent of poverty among children in general, and among
specific
groups. Table 38 presents the proportion of poor children among all
children in Israel for different years, prior to and following
transfer payments
and taxes. The Table indicates that while in 1980, taxation and transfer
payment mechanisms
managed to extricate nearly half of the poor children of Israel from poverty,
the efficacy of these mechanisms was sorely damaged
during the 1980s.
During the 1990s, there was some improvement in the efficiency of transfer
payments and taxes, apparently as a
result of deliberate policy.
Nevertheless, most poor families remained below the poverty line despite
government assistance. Moreover,
most of the families whose income rose above
the official poverty line continued to experience significant financial
difficulties,
and to need additional help.
Table 38
The incidence of poverty among children, 1980-1998
(in %)
|
Prior to transfer payments and taxes
|
After transfer payments and taxes
|
Percentage removed from poverty
|
|
15.4
|
8.1
|
47
|
1990
|
31.4
|
22.3
|
29
|
1993
|
33.0
|
22.1
|
33
|
1994
|
34.5
|
22.8
|
34
|
1995
|
35.2
|
23.2
|
34
|
1996
|
33.4
|
21.4
|
36
|
1998
|
38.2
|
22.8
|
40
|
Source: National Insurance Institute 1999.
- Table
39 presents the influence of transfer payments and direct taxation on the
incidence of poverty among children in various groups.
As may be seen in the
Table, despite favoring large families, transfer payment and taxation mechanisms
have had only slightly greater
success in extricating large families from
poverty than small families: In 1998, transfer payments and taxation extricated
about
41% of the children in large families from poverty, compared to 40% of the
children in small families. This was nevertheless an
improvement over 1995,
when only 31.8% of the children in large families were removed from
poverty, compared to 37.5% of the children
in small families.
- It
is interesting to note that transfer payments and taxes were more effective in
extricating children in single-parent and immigrant
families from poverty. In
1998, transfer payments and taxes managed to remove about 55% of the children in
immigrant families and
43% of the children in single-parent families from
poverty. It should be noted, however, that in 1996, more than half of the
children
in single-parent families were removed from poverty. The decline in
the effectiveness of these mechanisms may be attributed to the
vulnerability of
single-parent families to rising unemployment.
Table 39
The percentage of children in different groups
living below the poverty line
or removed from poverty by transfer payments
and taxes in 1998
|
Prior to transfer payments and direct taxes
|
After transfer payments and direct taxes
|
|
All children
|
38.2
|
22.8
|
40.0
|
Single-parent families (1997)
|
64.0
|
36.5
|
43.0
|
Immigrant families
|
40.6
|
18.1
|
55.4
|
Large families
|
59.6
|
34.9
|
41.4
|
Small families
|
24.5
|
14.8
|
39.6
|
Source: National Insurance Institute, 1999.
(e) The national council for narrowing social gaps and
reducing poverty
- In
August 1996, the government established a national council for narrowing social
gaps and reducing poverty, which began its work
in May 1997. The council was to
examine all aspects of economic and social hardship, including education,
housing and health, and
to suggest ways of reducing it. It was also charged
with redefining poverty and its measurement, in light of the support services
provided to poor families.
- In
December 1999, the council presented its final recommendations for social
service policy. It stressed the importance of identifying
populations at risk
and their needs, and allocating earmarked resources to vulnerable segments of
the population and to peripheral
geographic areas, with the aim of developing
innovative projects, primarily at the local level.
3. Additional assistance with basic living conditions for
families with children
- In
Israel, individual welfare services, including those for children and youth, are
provided under general welfare legislation that
requires local authorities to
supply welfare services to individuals and families who need them. In the past,
social welfare departments
provided financial support to needy families. Since
1982, support has been paid to families through National Insurance Institute
benefits, under the Assurance of Income Law. Social welfare departments
continue to provide counseling, personal services, and emergency
financial aid.
Social welfare departments are also responsible for investigating reports about
children who may not be getting appropriate
care from their parents, or whose
living conditions endanger their welfare and well-being (see Chapter VII). The
direct financial
support that the departments provides is limited, temporary,
and reserved for families in severe financial distress; it includes
help
purchasing basic household equipment (35,000 families received such assistance
in 1995), and temporary assistance with housing
expenditures.
4. The right to adequate housing
- Since
its establishment, the State of Israel has seen itself as responsible for
providing adequate housing to its residents. This
right is not anchored in
legislation, but rather is realized primarily through administrative
programs.
- Information
on the housing situation in Israel is based primarily on the household
expenditures surveys conducted by the Central Bureau
of Statistics. The 1997
household expenditures survey indicated that 69% of the heads of households
owned their apartment, while
about one-quarter of them rented their apartment.
Most of the home owners purchased their apartment during their first three years
of marriage.
- There
has been a consistent improvement in housing conditions over time, with the
percentage of three or more people per room declining
steadily. Arab households
are more crowded than Jewish ones. In about 9% of Arab households there is
crowding of more than three
people per room, compared to 1.5% of Jewish
households. This is in part due to differences in family size.
(a) Assistance for owners of inadequate housing
- The
State implements various programs that aim to provide all of its residents with
appropriate housing. For example, in order to
ensure an adequate supply of
apartments, the Ministry of Housing plans new cities and
neighborhoods.
- The
State employs the following measures to help residents obtain
housing:
(a) Government subsidized mortgages. The first
criterion for receiving a mortgage is that no one in the household owns an
apartment
or has received a mortgage in the past. Those who are eligible for a
mortgage according to this criterion are classified by resident
status
(new immigrant versus long-time resident) and marital status (unmarried,
married, single-parent family). The level of assistance
is determined according
to variable criteria (number of years of marriage, number of children, size of
the spouses’ families)
and socio-economic criteria. Special assistance
purchasing an apartment is provided to single-parent families and soldiers who
have
been discharged from the army, under the Single Parent Families Law 1992
and the Discharged Soldiers Law 1949. In addition, assistance
with housing is
influenced by the geographic location of the apartment: Israel was divided into
four areas according to national
priority, with greater assistance provided for
housing in peripheral areas and development towns. The 1990s saw an increase in
the
number of young couples who applied for a government-subsidized mortgage.
The greatest increase was registered among young couples
in the Arab and Druze
sectors. According to Ministry of Housing data, in 1996 more than 52,000
residents took advantage of their
right to apply for a government-subsidized
mortgage;
(b) Government rent subsidies. This program was meant to help
people of limited means including new immigrants, single-parent families,
families with low income, and people in the process of divorce who are
responsible for children rent an apartment on the private
market. It is meant to provide temporary assistance for between one and
three years, although families with exceptionally low income
are eligible for a
rent subsidy for an unlimited time. In 1996, 140,000 households received a
monthly rent subsidy. Eighty percent
of them were new immigrants, and 9%
of them were young couples;
(c) Public housing. Preference in the
provision of public housing is granted to singleparent families with three or
more children,
families that have a member with a physical disability, and
families with particularly low income. Residents of public housing pay
a low
monthly “rent”. About 120,000 housing units around the country
(7.5% of all of the housing units in the country)
belong to public housing
companies two of them large public housing companies, and the remainder
public-municipal housing companies.
Many families are waiting to receive public
housing. Recently, a law was passed that enables families living in
publiclyowned housing
to purchase their apartment under advantageous
conditions.
- Claims
have been made that these forms of assistance are insufficient. Specifically,
it has been claimed that the government-subsidized
mortgage is not ample enough
to allow purchase of an apartment, that rent subsidies do not keep pace with
inflation, that there is
no new public housing, and that existing housing is in
poor condition.
- Assistance
is also provided to families that live in extremely crowded conditions, or
poor housing conditions that may endanger their
health (as determined by a
medical committee). For example, assistance is provided to households in
which the crowding is more than
2.2 individuals per
room.
- The
Ministry of Labor and Social Affairs, through its social welfare departments,
provides temporary assistance to families that need
help paying rent, making
home repairs, or moving. Such assistance is a “safety net” for
people who are undergoing a
temporary housing crisis. It is provided for a
maximum of two months; eligibility criteria are similar to those of the Ministry
of Housing. The decision to grant assistance is made on the basis of a social
worker’s report.
(b) Assistance to the homeless
- In
recent years, awareness has grown of the problem of homelessness. It is
estimated that some 3,000 homeless people, most of them
childless adults,
live in Israel. A number of local authorities, in cooperation with government
ministries, have developed a network
of services for homeless people, which
includes shelters and rehabilitative services.
- Another
serious problem is that of youth who have nowhere to live, or who have run away
from home and find it difficult to return
and reestablish contact with their
parents. ELEM Youth in Distress, in cooperation with other agencies (such as
ASHALIM) supports
these young men and women through two shelters for homeless
youth in Tel Aviv and Jerusalem, a network of therapeutic “coffee
houses”, and a mobile unit that travels to the meeting places of homeless
youth in large cities (see Chapter X).
(c) Population groups with special housing
problems
(i) New immigrants
- Almost
70% of the new immigrants who came to Israel from the former Soviet Union
between 1989 and 1994 have purchased an apartment.
Special attention has been
devoted to housing for Ethiopian immigrants. At present, approximately 60,000
immigrants from Ethiopia
live in Israel; the percentage of children among them
is large about 60%. These immigrants arrived during two waves of immigration:
during the 1980s, and the 1990s. Most of the immigrants who arrived during the
1980s were settled in public housing, and have remained
in the towns where they
were first settled. During the second wave of immigration, in the
early 1990s, public housing was not in
sufficient supply; consequently, the
immigrants were housed in hotels, and later in caravans (mobile homes) at 22
temporary housing
sites that were also home to immigrants from the former Soviet
Union. After a number of years, the decision was made to encourage
the
immigrants to move to permanent housing by offering them large, subsidized loans
to purchase an apartment. This effort proved
be fruitful; at the end of 2000,
only about 100 families remain at temporary sites.
Table 40
Number of immigrant families residing in temporary
housing, by year
|
September 1992
|
April 1996
|
Temporary site (mobile homes)
|
3 720
|
450
|
Absorption centers
|
1 460
|
250
|
Hotels
|
157
|
-
|
Total
|
5 337
|
700
|
Source: Ministry of Immigrant Absorption data.
(ii) The Bedouin population in unrecognized
villages
- A
special housing problem is posed by Bedouin living in encampments that are not
recognized by government urban and rural planning
frameworks. Most of these
“settlements” are in the south of the country, although 3,000 people
(Bedouin and non-Bedouin
Arabs) live in unrecognized villages in the north. In
the 1960s and 1970s, as part of a national program to address this problem,
seven small towns were planned and established in the south for the Bedouin
population. Although 40,000 Bedouin moved to these towns,
more than 50% of them
refused to move, such that at present, 50,000 people remain in unrecognized
villages. These villages are not
connected to infrastructure, and all
construction in them is illegal; about 54% of
their residents are
children under the age of 14 a particularly high percentage. Israel has come
to understand that it cannot force an urban lifestyle on the Bedouin. Since
1993, an attempt
has been made to change policy; between 1993 and 1995,
the Ministry of Housing invested NIS 138 million in improving the
standard
of living of the Bedouin without disturbing their traditional
lifestyle. In 1996, a special Knesset committee recommended that the
government compromise by recognizing some of the illegal villages, and
indeed, eight of the 40 unrecognized settlements have been
recognized.
Residents of villages that have not been recognized will be compensated. The
committee also recommended planning villages
and towns for Bedouin in a way
commensurate with their needs and traditions.
IX. EDUCATION, RECREATION AND CULTURAL ACTIVITIES
A. Articles 28 and 29 of the Convention
- In
this chapter, we present the education system of Israel. We will describe the
laws and principles on which it is founded, as well
as its organizational
structure and infrastructure. We will also present data on the allocation of
funds, and indicators of its
success, such as attendance and drop-out
rates.
- We
will then discuss the extent to which the main principles of the Convention are
implemented in the Israeli education system: the
steps taken to ensure
education for all; the way in which education is made possible for each
religious, national, cultural and linguistic
sector; and the degree to which the
education system expresses the cultural and religious differences of
Israel’s heterogeneous
population. We will cite the agencies and
mechanisms that facilitate freedom of speech, teach self-expression, and
increase awareness
of human rights. We will also cite programs that encourage
the participation and involvement of children in the community. We will
survey
the agencies that provide cultural and recreational services to children and
youth, and discuss government involvement in
their promotion, as well as data on
participation rates in different sectors. We will describe disciplinary
regulations and practices
for enforcing them, and will address the mechanisms
for reporting and addressing deviations from them.
- In
December 2000, the Knesset passed the Pupils’ Rights Law 2000. The aim of
this law, as defined in its first section, is
to determine principles for
students’ rights, in the spirit of human dignity and of the UN Convention
on the Rights of the
Child, while preserving the uniqueness of the various
education frameworks as defined in the relevant laws. According to the
Pupils’
Rights Law, every child and youth in the State of Israel has the
right to an education according to all instructions of the law.
1. The constitutional right to education
- In
Israel’s fundamental human rights laws, which the Supreme Court has ruled
have constitutional status, the right to education
is not mentioned. However,
some believe that the right, or aspects of the right, to an education is
subsumed in the right to human
dignity established by sections 2 and 4 of the
Basic Law: Human Dignity and Liberty. Although one
Supreme Court
justice opposed this view, the justices who sat with him wished to cite this as
requiring study, and the matter was
not decided ((Petition to the) High Court of
Justice 1554/95 “SHOHAREY G.I.L.A.T.” Association
v. Minister of Education, Culture and Sport,
P.D. 50(3) 2).
- Another
question which has yet to be decided in Israel is whether the right to an
education is a fundamental one according to “accepted
legal
standards” that is, whether the administrative authorities are obligated
to provide education.
- In
any case, the practical importance of these questions is relatively limited, as
a long list of specific laws and regulations ensure
extensive rights to an
education. As noted, the recently enacted Pupils’ Rights Law 2000
stipulates that “every child
and youth in the State of Israel has the
right to an education according to all instructions of the law”. Some of
these will
be reviewed below.
- One
problem that has no satisfactory solution at present is that of education for
the (estimated 3,000) children of foreign workers
who are in Israel
legally, and illegally. Although the Ministry of Education recognizes its
responsibility to provide education
to all children residing in the country, it
appears that some of these children, particularly those whose parents are in
Israel illegally,
do not regularly attend school. Many of the younger children
spend a large part of the day in poorly-organized, unsupervised frameworks.
Children of foreign workers are not entitled to supplementary services, such as
special Hebrew languages classes like those provided
to new immigrants. Several
Knesset committees are engaged in seeking solutions to these
problems.
2. Legislation
(a) Government education
- The
State Education Law 1953 stipulates that, in Israel, education will be provided,
as a rule, by the State on the basis of an educational
program that is
supervised and approved by the Ministry of
Education.[*] The law recognizes two streams of
education: State education, and State religious education. The law allows the
Minister of Education
to approve, at the request of 75% of the parents of
students in State or State religious schools, an additional or special
educational
program. The law also sanctions non-government education
institutions, recognized but not official institutions that are supervised
by
the Ministry of Education, and independent institutions that are not supervised
by the Ministry.
- Section
10 of the law stipulates that parents have the right to choose the stream of
education which their children will attend. However, parents
who request that
their children attend a State or State religious school are not allowed to
choose the specific school their children
will attend. The local school board
refers children to schools, first and foremost in accordance with the policy of
social integration,
which is imposed upon parents and children.
- The
law prohibits discrimination in the provision of education due to ethnic
background, nationality, or disability. Cases brought
before the courts have
resulted in rulings in favor of citizens.
(b) Compulsory education
- The
Compulsory Education Law 1949 stipulates that education in Israel is compulsory
for children ages three to 15 inclusive, or until
the completion of ten years of
schooling. In effect, as will be discussed below, in most regions compulsory
education is enforced
beginning at age five. The law allows the Minister of
Education to grant an exemption from compulsory education in special cases,
such
as when a child is educated privately, or cannot be integrated into a regular
school.
- Responsibility
for the regular school attendance of each and every child falls on parents, the
State, and the local authorities.
According to section 4(a) of the Compulsory
Education Law, parents (or guardians) must register their school age children at
an education framework and ensure
that they attend it regularly. Parents who do
not fulfill this obligation are committing a criminal offense. School
principles,
homeroom teachers, guidance counselors, and truant officers are
responsible for enforcing regular school attendance on behalf of
State and local
authorities.
(c) Free education
- According
to the Compulsory Education Law 1949, children and youth age three to 17 have
the right to free education. Local education
authorities are responsible for
the education of the children and youth who live under their jurisdiction;
ultimate actual authority
rests with the mayor or head of the local authority.
The Supreme Court enforces this obligation.
- Parents
are required to purchase books and school supplies for their children, and
sections 6-8 of the law allow a local authority to charge fees for services
provided to pupils. In addition to mandatory fees, the school is
authorized to
collect optional fees for special services, if these are approved by a
parents’ committee. However, school registration
and attendance are not
conditional upon any payment.
- Complete
implementation of free education for children ages three-four has been deferred
for budgetary reasons; free education for
children age three-four is only
provided in some towns and neighborhoods, although their number has expanded
recently under the Compulsory
Education (Implementation in Nursery Schools)
Ordinance 1999. Under this ordinance, free education is provided from age three
in
some towns and neighborhoods, and from age four in others. In the remaining
towns, free education is provided from age five, although
the local authorities
in these towns provide pre-compulsory education from age three-four for a fee.
This preschool tuition is progressive,
and is set according to socio-economic
criteria.
- Some
expansion of free education is anchored in Ministry of Education policy. For
example, the State finances the education of technicians
and junior grade
engineers for two years beyond 12th grade (i.e. grades 13 and 14). It also
provides financial assistance to students
whose parents cannot pay for school
services that supplement those required by law. In order not to place any
student at a disadvantage,
a committee comprising representatives of schools,
parents’ organizations and the local authority determines which families
are eligible for assistance, discounts or exemptions because of their financial
situation or because they have more than one child
in school.
(d) Extended school day and enrichment programs
- The
Extended School Day and Enrichment Education Law 1997, which orders the
extension of school hours, is intended to increase equal
opportunity in
education and to enable children to fulfill their potential. The law stipulates
that at least four school days a
week will be eight-hour school days. It is
being implemented gradually, first in neighborhoods and towns whose education
systems
need reinforcement. The law should be implemented in the entire
education system by 2001.
(e) Special education
- Education
services were also significantly expanded by the passage of the Special
Education Law in 1988. This law establishes the
right of children with
physical, mental, emotional or behavioral disabilities to an education suited to
their needs and development,
and ensures that education frameworks are adapted
appropriately.
- The
law stipulates how eligibility for special education is to be determined, and
that an individual study plan is to be made for
each and every child, so as to
enable him to fulfill his potential.
- The
law also expands the type and scope of services provided in the framework of
special education. Under the law, special education
is provided to children and
youth ages three through 21; the law also increased the number of special
education hours, lengthened
the school day and year (special education schools
are open during vacations), and established the right of children to paramedical
services (e.g., physical, occupational, and speech therapy), expressive
therapies, and assistive devices.
- The
Special Education Law has been implemented gradually during the past decade.
The law itself does not determine the sources or
the extent of funding for its
implementation. Consequently, implementation of its various provisions has
required the development
of master plans and negotiation between the Ministries
of Education and Finance. Provisions of the law that are clearly defined,
such
as longer school days and extending coverage from age three to age 21, have
been implemented. Other provisions of the law,
which were more ambiguous (such
as the extent of paramedical services or equipment required), have yet to be
implemented. Negotiations
between the Ministries are
continuing.
- In
addition, the law expresses a deliberate policy of integrating disabled children
into regular schools to the extent possible, by
requiring that children be given
the assistance they need in the “least restrictive environment”.
However, services
provided under the law are
allocated mostly to
children in special education schools and classes, while funds allocated to
children who have been mainstreamed
are limited and considered insufficient (for
additional information, see Chapter VIII).
- The
Rehabilitative Day-care Centers Law 2000 is meant to ensure toddlers ages
onethree, who suffer from a disability, mental retardation,
or some other
handicap, an appropriate rehabilitative, therapeutic and educational framework,
financed by the State.
3. The goals of education in Israel
- Israeli
society views education as important both to ensuring social mobility and
equality, and to enabling every child to realize
his ability to become
integrated into the labor market as an adult.
- The
goals of State education, as defined in section 2 of the State Education Law
1953 and recently amended, are as follows:
(a) To educate the
individual to love others, his people and his country, and to be a loyal citizen
of the State of Israel who respects
his parents and family, his heritage, his
cultural identity and his language;
(b) To impart the principles
embodied in the Declaration of Independence of the State of Israel and the
values of the State of Israel
as a Jewish and a democratic State, and to foster
respect for human rights, fundamental liberties, and democratic values;
obedience
to the law; preservation of one’s culture and respect for the
opinions of others; and commitment to working for peace and tolerance
among
individuals and between nations;
(c) To teach the history of the Land of
Israel and the State of Israel;
(d) To teach the Torah of Israel,
the history of the Jewish people, the heritage of Israel, Jewish tradition, the
memory of the Holocaust and heroism, and
respect for these;
(e) To
develop the personal character, creativity and diverse talents of every boy and
girl, so that they may fully realize their
abilities as human beings and live
lives of quality and meaning;
(f) To ground their knowledge in the
various fields of science and all manner of human creativity over the centuries,
to impart the
basic skills that will be required of them during their lives as
adult human beings in a free society, and to encourage physical
education and
recreational culture;
(g) To reinforce in them sound judgment and
critical faculties, to cultivate their intellectual curiosity, independent
thought and
initiative, and to develop their awareness of and alertness to
change and innovation;
(h) To grant equal opportunities to each and
every child, to enable them to develop in their own way, and to create an
atmosphere
that encourages and supports individuality;
(i) To cultivate involvement in Israeli society, a willingness to accept and
fill roles with dedication and responsibility, a desire
to provide mutual
assistance, contribute to the community, volunteer, and work for social justice
in Israel;
(j) To foster respect for and responsibility toward the
natural environment, and a bond with the land, landscapes, flora and
fauna;
(k) To teach the language, culture, history, heritage and
tradition unique to the Arab population and other population groups in
the State
of Israel, and to recognize the equal rights of all citizens of Israel.
- It
is the policy of the Ministry of Education to encourage every youth to
complete 12 years of school and matriculation examinations.
Special
effort is invested in helping students from vulnerable population groups,
promoting and improving Arab education, absorbing
immigrants into the education
system, and implementing the Special Education Law for populations with special
needs.
4. Resources in education
(a) National expenditures on education
- The
expenditure on education is the largest of the government’s expenditures
on social services, and represents the second largest
expenditure (after
security) in the national budget. Public expenditure on education grew steadily
during the past decade, from
6.5% of the Gross National Product in 1990 to 8.4%
of the GNP in 1998.
(b) Number of classes, number of students per class, and
number of school hours
- In
1999/2000, the education system included approximately 45,000 classes, about 80%
of them in the Jewish sector and 20% of them in
the Arab sector. The number of
students per class and the number of school hours influence both the extent of
education provided
to students, and its quality. Despite the large investment
of resources in education, the system is characterized by relatively
large
classes.
Table 41
Average number of students per class, by
sector
|
Total
|
Average students per class
|
Jewish sector
|
Arab sector
|
1980
|
26.7
|
25.8
|
31.1
|
1990
|
27.8
|
27.1
|
30.9
|
1995
|
28.1
|
27.4
|
30.9
|
1998
|
29.0
|
27.0
|
31.0
|
Source: Ben-Arie and Zionit, 1991.
- The
accelerated development in the number of classes has not matched the increase in
the number of students; consequently, the average
number of students per class
is on the rise: from 26.7 in 1980 to 29 in 1998. This rising trend in the
number of students per class
is characteristic of elementary education in the
Jewish sector. Although the average number of students is higher in the Arab
sector,
the average number of students (31) per class in the Arab sector has
remained stable during the past decade.
- As
the Extended School Day and Enrichment Education Law 1997, which requires
extending the school day, has yet to be implemented in
full, most of the pupils
in prekindergarten and elementary education attend school for between four and
five hours a day; older children
attend school up to seven hours a day
only.
(c) The quality and training of teaching staff
- Another
factor influencing the quality of education and the ability of children to make
the most of it is the quality of teachers
and teaching. Table 42 presents the
level of education of teachers in 1981 and 1998, by sector. As may be
seen, there has been
an improvement in the level of education of teachers in
both the Jewish and Arab sectors. However, as the Table indicates, teachers
in
the Arab sector are less educated than those in the Jewish
sector.
Table 42
Level of education among teachers, by sector (in
%)
Education framework
|
Jewish sector
|
Arab sector
|
1981
|
1998
|
1981
|
1998
|
Elementary schools
|
|
|
|
|
University degree
|
14
|
38
|
9
|
25
|
Senior
|
22
|
40
|
6
|
52
|
Certified
|
48
|
6
|
58
|
12
|
Non-certified
|
16
|
6
|
27
|
11
|
Secondary schools
|
|
|
|
|
University degree
|
58
|
72
|
53
|
62
|
Senior
|
12
|
16
|
10
|
22
|
Certified
|
27
|
10
|
33
|
12
|
Non-certified
|
3
|
2
|
4
|
4
|
Source: Sprintzak et al., 2000.
- During
the 1997/98 school year, 38% of the elementary school teachers and 72% of the
secondary school teachers in the Jewish sector
were university graduates,
compared to 25% and 62%, respectively, of their colleagues in the Arab
sector.
5. The structure of the education system
(a) Description of the system
- The
education system in Israel is under the surveillance of the Ministry of
Education. During the past 20 years, there has been a
constant increase in the
number of students attending school, particularly secondary schools, preschools,
and schools in the Arab
sector.
- The
education system comprises preschools, elementary schools (grades one through
six), and secondary schools, which comprise two
organizational structures of
three years each: middle schools (grades seven through nine) and high schools
(grades ten through 12).
In certain towns, elementary schools provide eight
years of education (through grade eight).
Table 43
The structure of the education system: the number
of students
in the education system, by type of framework, 1998/99
|
Number of students
|
Early childhood education (preschools for ages 25)
|
350 887
|
Elementary education (grades 16)
|
725 745
|
Elementary schools
|
676 865
|
Special schools
|
17 606
|
Other institutions (TalmudTorah “cheder”)
|
31 274
|
Secondary education (grades 712)
|
550 148
|
High school (grades 1012)
|
238 165
|
Middle school (grades 79)
|
296 983
|
Other institutions
|
15 000
|
Source: BenArie and Zionit, 1999.
- Israel’s
education system comprises two main sectors, which are operated as two separate
systems: the Jewish sector (which
serves 81.5% of the students) and the Arab
sector (which serves 18.5% of the students, who are Moslem and Christian Arabs,
Druze,
Circassian, etc.). Each of these sectors has its own institutions and
curricula.
- The
structure of educational institutions and the content of study in the Arab
sector are similar to those in the Jewish sector, with
differences that reflect
the different cultures of the two populations. Studies of the educational
institutions in each sector are
conducted in the mother tongue of the population
that attends the institution.
- The
Jewish sector is divided into three streams or “types of
surveillance”: State (with a secular orientation), State
religious (with a moderate orthodox orientation) and
independent“haredi” (with an ultraorthodox orientation).
Each of these streams has its own
schools. State religious schools follow the same format as do State schools,
but their curriculum includes studies with a religious
emphasis.
Independent schools (“exempt institutions”) that are affiliated with
the haredi stream are not under the surveillance of the Ministry of
Education.
- In
1998, 66% of all elementary school students attended State schools, 21% attended
State religious schools, and 13% attended independent
schools. In that year,
threequarters of all secondary school students attended State schools, 18%
attended State religious schools,
and 9.8% attended independent
schools.
- Almost
all of the children attend “public” schools that are under the
surveillance of the Ministry of Education and are
financed by the Ministry and
the local authorities. A few schools are operated by private associations but
are financed by and under
the surveillance of the Ministry. Educational
frameworks that are completely private and that function outside of this system
are
rare. Such schools are more prevalent in the Arab sector, and in the
haredi segment of the Jewish sector.
- The
division of educational institutions into Jewish and Arab sectors and according
to level of religious observance enables each
sector to maintain its linguistic
and cultural uniqueness, and limits cultural tension among students within the
schools themselves.
However, this separation limits opportunities for a meeting
of the minds and mutual acquaintance among the different groups.
- In
addition, since there is a strong correlation between choice of the State
religious stream and low socioeconomic status in the
Jewish sector, and even
lower socioeconomic status in the Arab sector, the separation among the sectors
may intensify discrepancies
in the levels of scholastic achievement and
perpetuate the social dissociation among these groups. Moreover, a
disproportionate
percentage of the better students in the State religious stream
choose to attend yeshivas and boarding schools for grades ten through
12,
leaving the State religious schools in the community to the weaker students.
(b) Early childhood education (newbornage 5)
- A
large proportion of Israel’s children attend public or private preschools.
In 1998/99, 351,000 children ages 25 who attended
public preschools
operated by local authorities and supervised by the Ministry of Education, and
private day care centers. Table
44 presents the percentages of preschool
attendance by sector.
- As
the table indicates, attendance at preschools and day care centers is almost
universal among children ages three to five in the
Jewish sector. In fact,
nearly 70% of children age two already attend preschools; by age three, the
attendance rate has risen to
95%, and by age five, when education becomes
compulsory, attendance has reached 99.5%.
Table 44
Preschool attendance,* by sector, 1997/98 (in
%)
|
Preschool Attendance
|
Jewish Sector
|
Arab Sector**
|
2
|
68.6
|
No data available
|
3
|
95.0
|
44.0
|
4
|
99.0
|
71.0
|
5
|
99.5
|
90.0
|
Source: BenArie and Zionit, 1999.
* Attendance rates at preschools under the surveillance of the Ministry
of Education; does not include data on children attending
preschools under the
surveillance of the Ministry of Labor and Social Affairs or the Ministry of
Religion.
** Not including private preschools and schools in East Jerusalem.
- In
the Arab sector, preschool attendance is relatively low: 44% of the Arab
children age three and 71% of the Arab children age four
attend preschools. The
attendance rate at kindergarten, which is compulsory, is lower among Arab
children (90%) than among Jewish
children.
- These
data indicate that although free education from age three is not implemented due
to budgetary limitations, the State of Israel
has attained nearly universal
participation in precompulsory education (ages two to four) in the Jewish
sector. The high level of
participation in early childhood education in this
sector is a result of investment of resources in the construction of preschools
and day care centers and the training of teachers and aides, which was
accelerated during the 1970s in recognition that beginning
education at the
earliest possible opportunity promotes equality and equal opportunity. This
recognition is also reflected in the
efforts made to enable families with little
means to send their children to such frameworks.
- As
noted, one of these means is that of progressive tuition in public preschools
(for children ages three to four) and day care centers
(children up to age
three) according to household income per capita. Fees are set by the Ministry
of Labor and Social Affairs, which
determines the rate of tuition for day care
centers and family child care, and the Ministry of Education, which determines
the tuition
for preschools. Discounts for preschool education are also given on
a geographic basis. Towns with a concentration of weak populations
sometimes
exempt them from paying for early childhood education.
(c) Elementary schools (ages 612)
- About
700,000 pupils attended elementary schools in 1998. In the Arab sector, the
number of pupils in the elementary school system
was about
163,000.
Table 45
Elementary school attendance rates (ages 612), by
sector (in %)
|
1992/93
|
1998
|
Jewish sector
|
95.1
|
96.3
|
Arab sector
|
95
|
95.7
|
Source: BenArie and Zionit, 1999.
- Elementary
school attendance rates are very high and are increasing. Table 46 indicates
that nearly all children ages six to 12 in
the Jewish (96.3%) and in the Arab
(95.7%) sectors attend school.
- State
and State religious elementary schools function on a neighborhood basis, and
therefore usually enroll an economically and culturally
homogenous population.
Independent schools are organized according to religious community
affiliation.
- In
some (State, State religious and Arab) elementary schools, the Ministry of
Education operates a separate section for kindergarten
through grade two; this
is meant to ease the children’s transition from kindergarten to first
grade.
(d) Secondary schools
(i) The structure of the secondary school
system
- In
Israel, the majority of schools in the secondary system are under the
surveillance of the Ministry of Education. In some towns,
all secondary
education takes place in one framework, which comprises grades nine through 12.
However, secondary education usually
lasts six years (from grades
seven through 12), and is divided into two organizational frameworks, each of
which lasts three years:
middle school (grades sevennine) and high school
(grades ten12).
- Middle
schools were part of a reform of the education system that took place in 1968
and that changed the structure of the system:
Neighborhood elementary schools
that ran from first through eighth grade were replaced by elementary schools
that ran from grades
one through six and middle schools that ran from grades
seven through nine. The establishment of middle schools was meant to increase
integration that is, contact among students from different neighborhoods and
cultural backgrounds thereby closing gaps in scholastic
achievement among
students from different elementary schools. The law requires that classes in
middle schools be heterogeneous with
the exception of certain subjects, such as
English and mathematics. This reform has to date encompassed close to 70% of
all secondary
school pupils in the Jewish and Arab sectors.
(ii) Educational tracks in high schools
- Students
in elementary and middle schools study according to the same curriculum. In
high school, students may choose between an
academic or a
technological/vocational “track”. Another product of the reform of
the education system was the “comprehensive”
secondary school, which
offers both academic and technological/vocational tracks at a variety of levels
for students in grades seven
through 12. In establishing these schools,
policymakers hoped to enable the maximum number of students to complete 12 years
of education.
Alongside comprehensive schools are high schools that offer only
one track (either academic or technological/vocational). At present,
58.7% of
high school students study in an academic track and 41.3% study in a
technological/vocational track. In addition, about
16,000 youths ages 1417
attend technological and industrial schools that are under the surveillance of
the Ministry of Labor and
Social Affairs. These schools integrate academic
studies with vocational training, and apprenticeships outside of school in the
upper grades.
- The
placement of students in tracks was intended to improve education and its
outcomes, and to facilitate designing curricula that
are suited to
students’ needs and goals, whether these be to attend college or
university (students in academic tracks), or
to enter the labor force or obtain
postsecondary technological education (students in technological/vocational
tracks). The level
of education offered to students in technological/vocational
tracks varies widely from school to school. Some technological tracks
are on a
very high level and prepare students to take matriculation examinations, which
are a condition for acceptance to institutions
of higher education, while others
provide only lowlevel vocational training, and prepare students for
matriculation examinations
only in part, if at all.
- In
preparation for the transition to high school, some middle schools offer
vocational guidance that includes information about high
school programs and
admission requirements. Students are referred to placement examinations that
test their abilities and natural
inclination. The results are then matched to
the educational tracks appropriate for each student. School guidance counselors
are
required to report the results of the examination to the student and his
parents. Some secondary schools base acceptance on the
results of these
examinations, as well as on the student’s scholastic
achievements.
- Critics
of the track system have claimed that it sustains and even reinforces
discriminatory social processes by creating homogenous
groups of students with
similar abilities and achievements. They warn that this is liable to transmit a
negative message to weaker
students about their ability, to deter them from
trying to succeed in school, and even to block them from important educational
opportunities.
For example, data show that the dropout rates of Jewish
students in technological tracks are twice those of students in academic
tracks
(8.4% versus 4.1%, respectively; Central Bureau of Statistics, 1997).
Awareness of the problematic nature of placement in
tracks has led some schools
to make the placement system more flexible, allowing students to transfer
between tracks for some or
all of their subjects of study if their scholastic
achievements enable them to do so.
(iii) High school attendance rates
- Israel
has a clear policy of continuing the education of youth until they have
completed 12 years of schooling, parallel to their
reaching the age of 17
or 18. Data from 1998 indicate that more than 95% of Jewish youth ages 1417
attend high school. Since 1989,
attendance rates have risen by
about 6%.
Table 46
Attendance rates of students ages 1417 at high
schools under the
surveillance of the Ministry of Education,* by sector (in
%)
|
Jewish sector
|
Arab sector
|
1989/90
|
90.5
|
62.8
|
1994/95
|
95.9
|
67.3
|
1997/98
|
94.5
|
78.9
|
Source: BenArie and Zionit, 1999.
* Data do not include private schools, schools in East Jerusalem, or
schools under the surveillance of the Ministry of Labor and
Social
Affairs.
- The
discrepancy between the rates of attendance in the Jewish and Arab sectors is
notable. Many (20%) Arab youth do not attend schools
under the surveillance of
the Ministry of Education. While the increase in the rate of attendance has
occurred in both sectors,
there is still a significant difference between them
(see the section below on the Arab sector).
- Table
47 reveals that attendance rates decrease consistently with age, as might be
expected: In the Jewish sector, the attendance
rate of students ages 1415 (who
are still subject to the Compulsory Education Law) is close to 100%, while the
attendance rate of
students age 17 is less than 90%. In the Arab sector,
attendance rates also decline with age, though far more sharply: The attendance
rate of students age 14 is 90%, while that of students age 17 drops
to 67%.
Table 47
Attendance rates at high schools under the
surveillance of the
Ministry of Education,* by age and sector (in %)
|
Jewish sector
|
Arab sector
|
14
|
98.6
|
90.4
|
15
|
98.0
|
83.0
|
16
|
94.3
|
73.8
|
17
|
88.8
|
67.4
|
Source: BenArie and Zionit, 1999.
* Data do not include private schools, schools in East Jerusalem, or
schools under the surveillance of the Ministry of Labor and
Social
Affairs.
- The
attendance rates of girls ages 1417 are higher than those of boys in both the
Jewish (97.3% of the girls, compared to 91.9% of
the boys) and the Arab
(82.5% of the girls, compared to 75.5% of the boys) sectors (data are for
1995/96). Table 48, which is based
on an analysis of data from 1993, highlights
differences in attendance rates by socioeconomic composition of town of
residence:
In general, attendance rates are lower in weaker towns, which are
often also geographically peripheral.
Table 48
Attendance rates of students ages 1518, by sector
and socioeconomic level
of town of residence, 1993 (in %)
|
Socioeconomic level of town of residence
|
Attendance rates*
|
Jewish
|
middle or upper class
|
99
|
|
lower class
|
81
|
Arab
|
middle or upper class
|
81
|
|
lower class
|
59
|
Bedouin
|
lower class
|
31
|
Source: Brandes, 1996.
* Data are estimates.
(e) Boarding schools
- Boarding
schools began to be developed and established as a legitimate and normative
education framework in Israel even prior to establishment
of the State. In
1933, Youth Aliyah was established as a department of the Jewish Agency in order
to rescue Jewish youth from Nazi
Germany. Many youths were brought to Israel
prior to the Second World War and educated in Youth Aliyah boarding schools.
After
the war, more young people came in their wake, many of them Holocaust
survivors. Since these young people usually arrived in Israel
without their
parents, boarding schools were an efficient way to care for them and absorb them
into Israeli society.
- The
absorption of children and youth who are immigrants or refugees in a group
framework, outside their parents’ home, continued
during the mass
immigration of the 1950s, when boarding schools absorbed both children who
arrived in Israel alone, and children
who arrived with their parents. Because
they quickly and effectively inducted these children into the nascent society,
boarding
schools and “youth societies” also eased the absorption of
the children’s parents. Boarding and group education
also came to be
highly regarded by the social elite during this period.
- As
the large waves of immigration abated and social values changed, the role and
status of boarding schools was transformed. Gradually,
the boarding school
population changed from one of refugees, immigrants and the social elite, to one
of children and youth who were
at risk or in danger, or who could not find their
place in community schools and their parents’ homes.
However, because of the social and historical circumstances that
led to the development of boarding schools, many including children
and parents
still perceived boarding school education as being prudent, rather than as an
extreme measure requiring a child to be
rent from his parents’
custody.
- At
present, about 67,000 (or 3%) of Israel’s children and youth live and are
educated outside their homes in approximately 500
boarding schools,
“youth societies” on kibbutzim, and in foster families. The exact
number of children and youth who
live outside their families can not be
calculated due to insufficient data on the number of children who live and are
educated in
yeshivas, particularly in the haredi sector, and on the
number and nature of these settings.
- About
40,000 of the children living in boarding schools are ages 1417. These young
boys and girls represent 9.6% of the students
in the secondary education system.
For the purpose of comparison, fewer than 1% of the youth these ages in the
United States, and
fewer than 2% of those in England, reside in boarding
schools. At the same time, it is important to note that the percentage of
students in boarding schools has been declining in the past two decades. In
1980, 13% of all secondary school students attended
boarding schools. Many of
the boarding schools for youth are operated by Youth Aliyah, which merged with
the Boarding School Department
of the Ministry of Education in
1996.
- For
several groups in Israeli society, boarding school education is more accepted.
About twothirds of the youth who attend boarding
schools are affiliated with a
religious education stream (48.9% with State religious schools and 22.8% with
independent schools).
Examination of the patterns of participation of youth in
boarding school education between 1979 and 1997 indicates a 61% increase
in the
students attending boarding schools in the State religious sector, and a more
than 200% increase in those attending boarding
schools in the independent
sector. During the same period, the percentage of students attending State
boarding schools decreased
(by 13.2%). Current data from the Department of
Personal and Community Services of the Ministry of Labor and Social Affairs
indicate
that the percentage of religious and haredi children among the
children referred to boarding schools by that Ministry is 55.5% (33.2%
haredi) significantly higher than their percentage in the population.
This reflects the acceptability of boarding school education in
religious
sectors. In fact, boarding school frameworks such as yeshiva high schools and,
in recent years, similar frameworks (“ulpanas”) for girls,
are perceived by the religiousZionist public as prestigious and as a hothouse
for the cultivation of social leadership.
Among the haredi public,
boarding school education is not only acceptable but is even perceived as
desirable for families that find it difficult to
bear the burden of raising or
educating many children.
- Boarding
schools have also once again become a solution for immigrant youth. Following
the waves of immigration of the 1990s, Youth
Aliyah boarding schools developed
various programs for the absorption of immigrant youth from the former Soviet
Union and from Ethiopia
(see the section on immigrants).
- Between
onequarter and onethird of the youth who attend boarding schools
are not affiliated with any of the sectors cited above.
Most of them
attend boarding schools out of choice either theirs or their
parents’. For many of them, the boarding school
framework is a
solution to personal or family problems, difficulties adjusting to an education
framework, or social or behavioral
problems. Some of these children are in fact
placed in boarding schools by the Service for Children and Youth, which pays
their
tuition. Regretfully, we do not have information on the
characteristics of these youth or the reasons for their studying outside
their homes. Neither do we have information on the solutions provided
to these youth in education or other frameworks, or the degree
to which
these solutions suit their characteristics or needs. Recently, with
the transfer of responsibility for Youth Aliyah from
the Jewish
Agency to the Ministry of Education, policymakers have expressed a
need for such data, as a basis for examining the efficiency
of
outofhome placements for these youth.
- In
addition, some younger children are referred to boarding schools by their local
social welfare department, through the Service
for Children and Youth. These
children attend boarding schools primarily because of serious family problems,
their own severe behavior
problems at school, or large gaps in their scholastic
achievements. For many of these children, the boarding school system is an
alternative to other forms of placement, such as a foster family.
About 8,000 children ages six to 14 (or 1% of the children in
this age
group) attend 85 such institutions (see Chapter VII).
- The
few boarding schools in the Arab sector are geared for children and youth with
serious emotional, behavioral and scholastic problems.
(For information on
schools and curricula in Youth Protection Authority institutions see Chapter X,
and in institutions for children
with disabilities see Chapter
VIII.)
(f) Scholastic outcomes of high school education
- One
of the primary goals of the Ministry of Education is to increase the percentage
of students who successfully complete matriculation
examinations. In Israel,
having successfully matriculated, which involves passing a number of standard
examinations, is a precondition
for obtaining higher education. The Ministry of
Education uses a variety of means to achieve this goal (see section (e)
below).
Table 49
Percentage of students age 17 eligible for a
matriculation certificate,
by sector and selected demographic
characteristics, 19871997
Characteristic
|
|
1992
|
1997
|
Total population
|
29
|
33
|
39
|
Jewish sector
|
|
|
|
Total
|
34
|
38
|
44
|
Gender: boys
|
30
|
32
|
38
|
girls
|
39
|
43
|
50
|
Ethnic origin (parents’ birthplace)
|
|
|
|
Israel
|
45
|
49
|
48
|
AsiaAfrica
|
23
|
28
|
37
|
EuropeAmerica
|
42
|
40
|
45
|
Arab sector
|
|
|
|
Total
|
14
|
16
|
21
|
Gender: boys
|
14
|
15
|
18
|
girls
|
13
|
16
|
25
|
Source: Sprintzak et al., 2000.
- Table
49 indicates changes in the percentages of students eligible for a matriculation
certificate between 1987 and 1995 in the Jewish
and Arab sectors, by significant
demographic characteristics. The percentage of Jewish students age 17 who were
eligible for a matriculation
certificate increased from 34% in 1987 to 44% in
1997. The percentage of Arab students age 17 who were eligible for a
matriculation
certificate increased from 14% in 1987 to 21% in 1997. The rates
of success on matriculation examinations in the Arab sector are
much lower than
those in the Jewish sector. In addition, the percentage of students age 17 who
sit for matriculation examinations
is much smaller in the Arab than in the
Jewish sector: In 1997/98, 59% of all Arabs age 17 and 33% of Bedouin Arabs age
17 sat for
matriculation examinations, compared to 70.3% of all Jews age
17.
- The
matriculation success rate of girls is significantly higher than that of boys:
50% of the girls in the Jewish sector and 25%
of the girls in the Arab sector
received a matriculation certificate, compared to only 38% and 18% of the boys,
respectively.
- Differences
in the rates of success on matriculation examinations among ethnic groups in the
Jewish sector that were recorded during
the early years of the State were still
present in 1997. The percentage of students whose parents immigrated from
AsiaAfrica who
were eligible for a matriculation certificate was lower than that
of students whose parents were born in Israel or in EuropeAmerica.
Nevertheless, the gap is diminishing.
- As
with rates of attendance (see above), so it is with eligibility for
matriculation based on the socioeconomic status of a student’s
town
of residence. According to data from the Central Bureau of Statistics,
which are based on a division of the towns in Israel
into ten socioeconomic
clusters, 38% of the 12th grade students in clusters 12 (towns with the lowest
socioeconomic status) were
eligible for a matriculation certificate, compared to
70% of those in clusters 910 (towns with the highest socioeconomic
status).
It is nevertheless interesting to note that the rates of success on
matriculation examinations in State religious schools are similar
to those in
State schools, even though a weaker socioeconomic population attends State
religious schools.
- Students
in technological schools (under the surveillance of the Ministry of Labor an
Social Affairs) have the opportunity to take
vocational qualification
examinations, and thereby obtain an authorized vocational certificate. However,
in reality, the young people
who are referred to technological schools usually
have relatively poor scholastic achievements, and find it difficult to obtain a
certificate of completion of technological education. In fact, data from 1992
indicate that only 30.4% of the Jewish students and
only 10.4% of the Arab
students who took these examinations were eligible for a certificate of
completion of technological education.
- Since
many students fail matriculation examinations, experts in the field of education
have been debating the possibility of enabling
students to receive a lowerlevel
certificate of scholastic achievement. This issue is controversial, as
educators and laymen alike
fear that institutionalizing the granting of a
lowerlevel certificate will reduce the overall level of scholastic achievement,
and
defer efforts to help many more students obtain a matriculation
certificate.
- At
the same time, recent years have seen an increasing trend toward letting
students sit for some of the matriculation examinations,
even if they do not
study in a program or track that is geared toward full matriculation. In fact,
students in industrial (the lowestlevel)
schools are allowed to sit for
matriculation examinations if their scholastic level makes this
possible.
6. Equal opportunities in education, preventing dropping
out,
and programs for special populations
(a) Equal opportunities in education
- The
State education system is perceived as a tool for obtaining social equality
among various groups in the population. It is therefore
not surprising that
many of the policy initiatives taken in the education system are meant to
achieve this goal, and that many mechanisms
are directed toward creating the
greatest possible degree of equal opportunity. First, providing free compulsory
education to all
students through a uniform curriculum under the surveillance of
the Ministry of Education indicates concern for accessibility to
education. In
addition, the stated goals of the Ministry of Education of reducing dropout
rates and improving students’ achievements
(especially increasing the
number of students eligible for a matriculation
certificate) also reflect its commitment to creating equal opportunity.
Further, the development
of a universal system of public surveillance of
precompulsory preschools, the subsidization of attendance fees at these schools,
the
emphasis placed on special programs for weak students of all ages, and
efforts to prevent students from dropping out of high school
all indicate that
the education system views ensuring equal opportunity as being of supreme
importance.
- Nevertheless,
despite all of these mechanisms, throughout Israel’s existence, the
education system has coped with gaps in the
level and outcomes of education.
These gaps exist between various groups: between Jewish and Arab students,
immigrant and more
veteran Israeli students, students in central and peripheral
geographic regions, and students with different socioeconomic backgrounds.
- A
number of factors have influenced the creation of these gaps in the Israeli
education system. As noted, the socioeconomic differences
among sectors,
coupled with the relative homogeneity of schools, has led to gaps in
achievements among different groups. Section
8 of the State Education Law 1953
authorizes the Minister of Education to approve an addition of up to 25% of the
school hours in
the curriculum, with expenditures arising from this to be paid
by parents, if 75% of the parents of students at a given school request
this.
Consequently, many parents who feel that the school week and school activities
are insufficient pay a supplemental fee, which
is used to implement educational
and recreational programs, reduce the number of students in a class, add class
hours in the fundamental
subjects, and enrich the infrastructure and assistance
available to the school. However, this increases the social inequality among
population groups, as families from poor neighborhoods cannot give their
children the same level of support that more financially
comfortable parents can
afford. Similarly, the differential investment of parents in private lessons
and extracurricular enrichment
classes contributes to gaps. In addition, gaps
arise from the differing investments of local authorities in the education
system,
as a supplement to the resources provided by the Ministry of
Education.
- Below
we will describe a number of mechanisms and programs designed to increase the
equality of educational opportunities. Additional
discussion of special groups,
such as immigrants and Arabs, may be found in other sections of this chapter.
(For information on
educational services for children with disabilities, see
Chapter VIII).
(b) The extended school day
- One
means of improving the equality of education is the extended school day, which
both provides educational enrichment to students
who need it, including
immigrants, and enables parents to work without having to pay for afterschool
child care. In 1990, the extension
of the school day was begun on an
experimental basis in a limited number of towns and neighborhoods. By 1993, the
extended school
day had been implemented in development towns and towns along
the northern border of Israel, in disadvantaged areas and neighborhoods
with a
high rate (over 35%) of children in distress, and in schools with a large
percentage (over 20%) of immigrants. The extended
school day has been
implemented in all of the classes at a total
of 785 schools.
- The
extended school day has aroused public debate. Opponents claim its
implementation requires investing many resources, even though
the inputs it will
provide are not necessary for most students. They also claim that implementing
the extended school day in all
schools will do nothing to increase equality as
long as it is universal, rather than focused on weaker pupils. Furthermore,
opponents
of the extended school fear that it will lower the level of teaching,
due to the need it will create to hire a large number of teachers.
Despite
these criticisms, and contrary to the recommendations of a 1996 public
committee, the Extended School Day and Enrichment
Education Law was passed in
1997, and steps are being taken for its broad implementation.
(c) The disadvantage index
- Another
strategy for improving the equality of educational opportunities and promoting
weak populations is the introduction into elementary
and middle schools of an
index of disadvantage, which is meant to compensate for educational deficiencies
arising from social and
family circumstances. In 1994, a new method was
introduced of distributing resources among schools, based on an index of
disadvantage
that measured general characteristics of a school and its
population: family income, parents’ education, family size, the
percentage of new immigrants in the school, and the geographic location of the
town. Resources are allocated to each school according
to its relative rank on
this index. In 1995, an index of disadvantage was devised for elementary and
middle schools serving Arabs,
Druze and Bedouin. Development resources were
used to improve the scholastic achievements of weak students, promote
excellence,
help underprivileged students make use of their talents, prevent
dropping out, and improve the social climate and communication in
schools deemed
eligible by their rank on the index.
(d) Preventing dropping out
- Reducing
dropout rates by increasing the proportion of students who complete 12 years of
education is one of the main goals of the
education system. In a special memo
from 1994 devoted to policy regarding dropping out, the directorgeneral of the
Ministry of Education
noted that “retaining students until they complete
12th grade, and reintegrating students who have dropped out, are cornerstones
of
the policy of the education system of the State of Israel”. The memo
emphasized the importance of preventing visible and
hidden dropping out, and
demanded that schools completely abandon the practice of expulsion, and instead
try to retain students and
prevent them from dropping out. If the good of the
student requires his being placed in another education framework, the
directorgeneral
asked that the school help him find an appropriate one. In
recent years, the government has increased its commitment to this issue,
and has
allocated resources to develop a new system of reporting and to provide
incentives to schools that prevent dropping out.
The policy of the Ministry of
Education is to increase attendance rates by setting a number of operative
goals:
(a) Creating educational and scholastic conditions that
enable a student to become integrated into school at the level and to the
extent
appropriate to his ability, and that help him realize his potential;
(b) Preventing students from dropping out by making school staff aware of
the importance of strictly enforcing regulations and by
implementing special
programs on the issue;
(c) Maintaining contact between the school and
parents;
(d) Creating a system of support in the community for
identifying, diagnosing and placing youth who have dropped out of and severed
ties with the education system.
- Regular
attendance is enforced by many people in the education system. According to the
Compulsory Education Law, municipal regulations,
and a 1994 memo of the
directorgeneral of the Ministry of Education, “the school principal,
homeroom teacher, teachers and
guidance
counselors of a school, the
local authorities, the truant officer, the educational psychologist and the
school nurse, the general
supervisor and the truant supervisor, the youth
promotion unit, the Ministry’s legal counsel, and the social worker are
responsible
for the educational and legal aspects of dropping out, and are
instructed to prevent students from dropping out of school and to
increase
attendance rates during all stages of education”.
- Truant
officers play a key role in addressing the problem of irregular attendance.
They deal with students who find it difficult
to function in a formal education
framework, students who are at high risk for dropping out, students in
transition between education
frameworks, and immigrant students who display
adjustment difficulties. Their job is to reduce dropping out by identifying and
reporting
visible and hidden dropping out, by returning students who have
dropped out to school, and by involving educational and therapeutic
agents in
preventing students from dropping out.
- Nevertheless,
the 1995 State Comptroller’s Report criticized the Ministry of Education
for not having reliable, current dropout
rates, which could make a valuable
contribution to identifying students at risk. According to the protocols of the
parliamentary
commission of inquiry into the dropping out of youth and the
illiterate 1994, the laws concerning the identification of drop outs.
In recent
years, the Ministry of Education has begun to manage a computerized data base on
school drop outs have not been enforced.
However, it is not sufficiently up to
date, and therefore is of limited use.
- It
should be noted that while the improvement in attendance rates described above
indicates a positive and very significant trend,
it does not in itself reflect
an improvement in the level of studies or quality of education. Educators have
cited the phenomenon
of “hidden dropping out” that is,
students who have not formally dropped out but who do not regularly attend
school,
or who do not actually study even though they attend school. Despite
the obligation to report students who do not regularly attend
school to a truant
officer, data on the extent of school absence are incomplete. A health behavior
survey conducted in 1998 among
students in grades six through ten found that
about onequarter of them had cut classes or school at least three times during
the
past school year (i.e. not due to illness or vacation). These were among
the highest percentages in the countries that participated
in the study (Harel
et al., forthcoming).
(e) Educational services and programs for students with
adjustment or other difficulties
- Enabling
the majority of students to complete 12th grade and become eligible to sit for
(at least some) matriculation examinations,
preventing students from dropping
out of high school, and reintegrating students who have dropped out into the
education system are,
as noted, important goals of the education system. To
realize them, Israel’s education system employs a wide and rich variety
of
services and programs in and outside of schools.
- Below
we will briefly review some of the more outstanding programs and services that
have been developed over the years to help children
with special
difficulties.
(i) Support services
- The
education system offers support services to children and youth who have
difficulty adjusting to the school environment. These
services are provided by
a large number of units and departments in the Ministry of Education and the
local authorities. In middle
and high schools, and to a lesser extent in
elementary schools, guidance counselors help students who have scholastic,
behavioral
or emotional problems. Most of the students are referred to the
counselors by their teachers, although some are referred by their
parents, and
others seek out the counselors themselves.
- Students
who suffer from more serious problems are usually referred to other
psychological services within or outside the education
system. Educational
psychology services offer assessment, diagnosis and limited intervention for
children referred to them by a
school. School psychologists advise teachers how
to address the problems of these children in the classroom.
- Table
50 presents the distribution of such services in schools throughout Israel for
the 1994/95 school year, based on a survey conducted
in that year. The
Table reveals that most of the Jewish schools in Israel maintain guidance
counseling and psychological counseling
services. There is over 90% coverage of
secondary schools by guidance counselors, and more than 90% coverage of
elementary schools
by psychological counseling services. There are significant
gaps in the Arab education system, regarding both guidance and psychological
counseling.
- There
are also gaps in the availability of these services according to the
socioeconomic status of the student population (as measured
by the Ministry of
Education’s index of disadvantage). According to a report of the
Committee of Inquiry into the Ability
of Students with Learning Disabilities to
Fulfill their Potential 1997, guidance and psychological services are more
readily available
in affluent schools, although it may be assumed that the need
for these services is greater among the populations of less affluent
schools.
Table 50
Guidance and psychological counseling in schools:
the percentage
of schools in which counseling was provided in
1994/95
|
Guidance counseling
|
Psychological counseling
|
Jewish sector
|
Arab sector
|
Jewish sector
|
Arab sector
|
Elementary
|
67.4
|
18.7
|
91.3
|
44.4
|
Middle
|
95.7
|
64.4
|
81.0
|
27.4
|
High
|
94.0
|
74.4
|
65.8
|
34.8
|
Source: Central Bureau of Statistics, 1997.
- Both
psychologists and guidance counselors often handle a great many cases, and
therefore cannot intervene intensively. A 1994 survey
of the psychological
services in two cities indicated that only 25% of the children who were referred
to the services benefited from
personal intervention; in most cases, only
diagnostic and assessment services were provided, or consultation for the
student’s
teachers.
- The
Ministry of Education’s truant officers are responsible for monitoring and
intervening with children who do not regularly
attend school. It is their job
to enforce the Compulsory Education Law, and to ensure that others in the system
responsible for
preventing students from dropping out (primarily the principal
and his staff) perform their duty. Truant officers do the
following:
− Identify students who have dropped out or who are in danger of dropping
out, and returning them to school.
− Implement educational intervention programs in and outside of schools,
in accordance with students’ needs.
− Care for individual students, represent them and mediate on their behalf
before professional committees.
− Report data.
In addition to working directly with
children and their families, truant officers can make referrals to other
services, if necessary.
It should be noted that the Ministry of Education
reports a shortage of truant officers (25% of the positions for truant officers
remain unfilled).
- Social
work services are also available in some schools; they are usually provided by
the municipal social welfare department to children
from problem
families.
- Several
agencies serve youth at risk: youth promotion units, which are operated by the
Youth Advancement Department of the Youth
and Society Administration of the
Ministry of Education through local authorities; and the Service for Young
People, Women and Girls
operated by local social welfare
departments under the surveillance of the Ministry of Labor and Social Affairs.
Youth at risk, in
this context, are defined as young men and women who are
neither working nor attending school, who are working but are not attending
a
supportive educational framework, who are enrolled in school but are at risk of
dropping out, or who are at risk of deteriorating
because they are recent
immigrants, or because they are exposed to marginal or even criminal behavior.
These services aim to prevent
the alienation and dissociation of youth at risk,
and to reintegrate them into school, work, the community of their peers, and
normative
society.
- These
services function in the community and offer a variety of personal and group
interventions for youth, such as centers for supplemental
basic education (the
HILA Program); information and counseling centers for youth; and municipal
services for immigrant youth at risk.
Additional programs include “life
without drugs”, a program to prevent and reduce the abuse of drugs and
alcohol; “I’m
against violence”, to prevent violence; and
programs that prepare youth for compulsory military service.
- In
1997, a survey was conducted of the characteristics, needs and attitudes of
youth in the care of the Youth Advancement Department,
and of the
department’s programs (KahanStrawczynski, 1999). The survey was the first
to examine needs by subgroup: immigrant
youth from the former Soviet Union,
Arab youth, and veteran Israeli youth. The survey found that, during the past
decade, the populations
served by youth promotion units had changed. In
addition to veteran Israeli boys, the units now served girls (18%), Arabs (5%),
and immigrants from the former Soviet Union (22%) and Ethiopia. The survey
further indicated that the units must vary the solutions
they offer and adapt
them to the unique needs of each of these groups. For example, it was found
that a relatively large percentage
of Arab youth reported feeling lonely and
lacking recreational frameworks; a large percentage of immigrants from the
former Soviet
Union reported abusing drugs and alcohol; and a large percentage
of girls reported seeking help from the unit with family problems.
The survey
also discovered that onethird of the youth in the care of units attend regular
schools and do not work, and that an additional
15% both work and attend school.
These findings indicate the need to reinforce contact with the schools the
youths attend. The survey’s
findings have been presented to professionals
and policymakers.
(ii) Special programs for students at risk
- A
variety of services have been developed for students who have difficulty with
their studies or who are at risk of dropping out,
most of them under the
auspices of the Department of Education and Welfare Services or the Youth and
Society Administration of the
Ministry of Education. Below we present the
programs for students who have adjustment problems.
- Several
thousand children from multiproblem families attend boarding schools and
afterschool centers. Some of these are operated
by the Department of Education
and Welfare Services, while others are operated by local social welfare
departments. During the past
two years, the Ministry of Education and the
Ministry of Labor and Social Affairs have cooperated to develop this service,
which
has consequently undergone significant expansion. These
frameworks offer remedial tutoring, enrichment, social activities,
meals, supervision, and access
to therapeutic services if needed. The afterschool centers serve children
from families in distress who are at high risk of dropping
out without
necessitating their going to boarding school, which would involve their
separation from their families and natural environment.
- The
Department of Education and Welfare Services also operates remedial classes and
youth centers, beginning in ninth grade. Because
these frameworks receive
earmarked funds, classes remain small, enabling participants to receive special
attention. It is currently
estimated that some 25,000 children participate in
remedial classes and youth centers.
- The
OMETZ Program was established to help students who have completed middle school
but who cannot be admitted to the high school
of their choice because of their
poor scholastic level. This program lasts four months, and prepares students to
make the transition
to high schoollevel studies.
- The
New Educational Environment, developed by JDCIsrael, aims to prevent students
from dropping out and help them improve their study
habits and scholastic
achievements. To date, the program has been implemented in schools throughout
Israel, primarily municipal
high schools and technological schools. The program
strives to change the attitudes and actions of teachers; it also reorganizes
the
learning environment. In 1997/98, 3,000 students participated in the program,
whose dissemination is continuing with the help
of the Department of Education
and Welfare Services.
- In
addition to developing and disseminating specific programs, initiatives are
taken based on local planning. Policymakers have realized
that in order to
significantly improve the education system, extensive, comprehensive action is
necessary. This led to the formulation
of the 30 Settlements Program, which
received earmarked funds to develop “holistic” projects
in 30 towns that have a
low socioeconomic profile (and that are
geographically peripheral or in the Arab sector). Through this program,
intensive assistance
is provided for three or more years to all of the
educational institutions in the chosen town, in cooperation with local
educational
leaders. The program identifies and solves problems, improves
students’ scholastic achievements, and develops local
leadership.
- Among
the variety of other programs is the youth movements’ “grade
13” program, in which young people volunteer
for a year after completing
high school (for example, working in a disadvantaged neighborhood or with
children and youth at risk).
- The
Israel Defense Forces (IDF) implements special programs for youth in distress
who join its ranks. In addition, it prepares youth
for army service by
implementing programs for the general population, in cooperation with schools,
and for special populations, in
cooperation with youth promotion
units.
(iii) Programs that help students matriculate
fully
- The
Ministry of Education implements many programs to strengthen weaker students and
improve their chances of completing all matriculation
examinations. To increase
the proportion of students eligible for a matriculation certificate, the
Ministry of Education acts in
four ways: it
encourages students to take matriculation examinations; provides intensive
assistance to students who need it; creates postsecondary
continuing education
frameworks; and pays for students who lack only one or two examinations to study
to complete matriculation.
The Ministry has earmarked resources for allocation
to schools that wish to take initiative in this matter, at their own discretion.
However, schools are not required to provide special programs, and no one
program is available throughout the system. Below we give
examples of some of
the main programs in this area.
- MABAR
(“transition to matriculation”) promotes students who ordinarily
would not meet Ministry of Education criteria for
taking matriculation
examinations. MABAR establishes small classes and invests extra effort in their
participants; in addition,
classes focus on the curriculum covered by the
examinations. As a consequence, most participants of MABAR do acquire a
matriculation
certificate. During the 1996/97 school year, about 10,000
students studied in MABAR classes.
- MICHAEL
(“fulfilling potential and striving for excellence”) encourages
success on the matriculation examinations by imparting
tools for effective
learning and strengthening good study habits. During the 1995/96 school year
the third year of the program’s
operation approximately 6,000 students
participated in MICHAEL.
- MALBAM
(“transition to modular matriculation”) integrates students from
weaker educational frameworks (e.g., remedial
classes, youth centers) into
matriculation programs. MALBAM attempts to increase these students’
motivation to study and achieve,
while teaching good study habits and bolstering
the students’ selfimage. In 1995/96, 640 students participated in this
program.
- External
Schools are also an avenue to a full secondary education and a matriculation
certificate, primarily for students who have
left a regular school after age 16.
External schools are unofficial institutions, and are usually established on the
initiative of
a privateeducational network, which operates them for profit;
nevertheless, they are under the surveillance of the Ministry of Education.
Between 1,300 and 3,000 students attend external schools. Although the success
rates at these schools are low, they are an important
“stopgap”,
which prevents students from completely dropping out of the education
system.
- The
“Second Chance” Program (13th Grade) is geared for students who have
completed 12th grade but have not yet taken all
of the examinations
required to receive a matriculation certificate. During the 1997/98 school
year, about 3,000 students in 80
education centers around the country
participated in this program. In addition, preacademic study programs, usually
offered at or
in cooperation with an institution of higher education, offer a
“second chance” to young people who have completed their
military
service and want to receive a matriculation certificate, so as to improve their
chances of being accepted into one of these
institutions.
- Despite
the efforts to advance weak students and help them matriculate, there is
consensus that large numbers of youth still fail
to realize their full
potential. This is due, at least in part, to the insufficient coverage provided
by these programs, particularly
in the Arab sector.
(iv) Alternative education frameworks for weaker students
and students with adjustment difficulties
- Technological
(industrial) schools under the surveillance of the Ministry of Labor and Social
Affairs. Along with high schools under
the surveillance of the Ministry of
Education, there are technological and industrial schools administered by
various public agencies
and under the surveillance of the Ministry of Labor and
Social Affairs, as stipulated by the Apprenticeship Law 1953 and the Youth
Employment Law 1973. These schools developed as an alternative to the
principal, regular system, and provide vocational training
and basic education
to young people ages 1417 who find it difficult to adjust to the regular system,
either because of behavior problems
or poor achievements, or who wish to receive
vocational training in a setting that integrates study with salaried employment.
Over
80 vocational schools are scattered throughout the country, most of which
provide three or four years of education (from ninth or
tenth through 12th
grade); about 16,000 students, or 4% of all youth ages 1417, attend such
frameworks.
- The
approach of these schools is based on the assumption that the problems that make
it difficult for the youths to adjust to school,
may also make it difficult for
them to adjust to a place of employment. Consequently, they are given
supervision and guidance, and
are taught good work habits alongside vocational
skills and basic academic subjects.
- In
recent years, technological schools have undergone many changes. Most of them
began as apprenticeship frameworks, in which students
worked five days a week
and attended school only one day a week. With time, they became fullfledged
schools, which provide a full
week of education in the lower (ninth and tenth)
grades, and combine education with a job placement (three days of work and three
days of school) in the upper grades. Students who successfully complete their
studies and pass external examinations given by the
Ministry of Labor receive a
vocational qualification certificate. Those who complete 12th grade and meet
certain standards also
receive a certificate of 12 years of education. In
recent years, some of the students in these frameworks have also begun to take
matriculation examinations.
- Critics
have claimed that the technological education system does not sufficiently train
its graduates to enter the labor force, as
some of the vocations taught and the
equipment used in the schools are not adapted for the current needs of industry.
The claims
made against the track system are also leveled against technological
schools, which “segregate” weaker students in separate
institutions.
When the two tracks (e.g. academic versus technological/vocational) are offered
in separate institutions, social alienation
may result among the populations
that attend different frameworks. Conversely, proponents of this system claim
that technological
schools are essential to meeting the needs of weaker students
and enabling them to complete some form of secondary education.
(v) Special and therapeutic alternative
frameworks
- Youth
Centers and Education Centers, which are operated by the Department of Education
and Welfare Services of the Ministry of Education,
serve youth who have dropped
out of the regular education system. Youth Centers combine academic study and
vocational training in
a relatively intimate framework. At present, 44 centers
serve approximately 8,000 youth.
- “Miftanim”
are an alternative framework operated by the Youth Rehabilitation Service of the
Ministry of Labor and Social Affairs, in cooperation
with the Department of
Education and Welfare Services of the Ministry of Education and the local
authorities. Miftanim teach basic
studies, vocational training and good work
habits to young people who are unable to adjust to other schools. This program
emphasizes
the acquisition of social skills, offers therapeutic support, and
provides an opportunity to experience a work environment in vocational
training
workshops. There are 37 Miftanim scattered throughout the country, which serve
some 2,400 youth.
- The
HILA Program is a structured learning program developed by the Youth Advancement
Department of the Ministry of Education. The
Ministry of Education grants a
formal certificate to students who complete eight, nine, or ten years of
education in this framework.
Some 2,500 youth participate in this program at 60
centers.
- As
the descriptions above indicate, much effort is invested in improving attendance
rates and developing programs to prevent or at
least reduce the problem of
dropping out. In addition to the programs described above, a variety of unique
programs with similar
aims are operated on a more limited scale. Unfortunately,
few data are available on the effectiveness of these programs. Despite
the
relatively great need for such programs in the Arab sector, these programs are
less prevalent there.
(f) Gifted students
- In
addition to designing programs for weaker populations, the Ministry of Education
devotes attention to students who are especially
gifted. The Ministry employs
two complementary strategies: One involves providing education instead of or
supplemental to the regular
curriculum, and the other involves identifying
gifted students, primarily those from a poor socioeconomic background, and
placing
them in boarding schools with high standards.
- The
Department of Gifted Students of the Ministry of Education is responsible for
operating enrichment programs for gifted children
in community schools. For
example, the department sponsors extracurricular enrichment classes during the
afternoon, weekly enrichment
days, special classes in schools, and
enrichment programs in Arab and Druze schools. In 1998/99, 11,584 students
participated in
the programs for gifted children of the Ministry of Education.
In addition, JDCIsrael and the Jewish Agency cooperate with the Ministry
of
Education on a variety of programs for gifted children in peripheral
areas.
- The
Association for the Advancement of Education operates boarding schools for
gifted children from poor socioeconomic backgrounds.
These include the new
Israel Academy of Arts and Sciences, which accommodates 182 students who
are gifted in the sciences, mathematics
and the arts from 70 different
communities; the AMUTA School of Mathematics and Physics in Jerusalem; and the
Negev 180 Regional
Center for Excellence, which employs regional cooperation to
improve the scholastic level of gifted children in the south of the
country.
Recently, associations and programs for gifted children have been approved in
the Arab sector.
7. Children’s rights in the education
system[*]
- In
recent years, children’s rights in the education system have received
social, educational and legislative attention. The
education system recognizes
the rights that accrue to children as human beings, which may not be annulled
except in extreme circumstances.
These rights are set down in
directorgeneral’s memos compulsory internal guidelines, principles and
regulations of the Ministry
of Education which schools are required to carry
out. Heightened awareness of the rights of the child is reflected in the
document
Involvement, Partnership and Responsibility, which was compiled by the
Ministry of Education in 1992 and which emphasizes the rights
of children in
schools and contains programs for use in schools concerning the rights and
obligations of schools.
- Students’
rights recently received legislative attention in the form of the Pupils’
Rights Law 2000, which addresses a
series of situations that call for protection
of students’ rights. The law prohibits a local board of education from
discriminating
against students on the basis of socioeconomic status, ethnic
background, or political views in the registration for, admission to
or
expulsion from a school, the determination of a course of studies or promotion,
the establishment of segregated classes in any
one school, or the rights and
obligations of the students, including rules of discipline. The law imposes a
sanction of one year’s
imprisonment or a fine for contravention of the
prohibition against discrimination.
- The
law also sets procedures that must be followed before a decision is made
regarding the permanent expulsion of a student from school.
Inter alia, the
student and his parents must be given the opportunity to state their claims in
the matter, and must be allowed to
appeal a decision regarding expulsion before
a hearing committee, to be established in each region. Hearing committee
decisions
regarding appeals may also be appealed to the Court for Administrative
Affairs.
- The
law addresses the implementation of disciplinary measures in schools, and
stipulates that discipline must be imposed in a manner
commensurate with respect
for human dignity; in this context, it is the students’ right not to be
subjected to corporal or
humiliating punishment. The law also prohibits a
school from punishing a student because of the omissions or commissions of his
parents.
- The
law requires all schools (with the exception of preschools) to encourage the
establishment of a student council, and to determine
its activities in
consultation with students.
- The
law addresses the confidentiality of matters involving students, and requires
any individual who receives information about a
student, in the context of a job
he is legally authorized to perform, to keep that information secret and not to
reveal it except
for the express purpose of performing his job.
- All
of the law’s stipulations apply to every official school. The
stipulations also apply to a recognized school that is not
official, with the
exception of those pertaining to student councils and procedures for permanent
expulsion. However, the Minister
of Education may impose these stipulations on
such institutions in certain conditions and in consideration of the
institution’s
character.
- A
special section of the law requires bringing its content to the attention of
students and their parents within 45 days of its publication.
- Below
we review the rights of students in schools and their involvement and
participation in school life. We also examine how the
Ministry of Education and
other agencies disseminate and uphold students’ rights. Later we review
how discipline problems
and violence are addressed in Israeli schools, and how
the school climate affects students.
(a) The rights of students in schools
- The
policy of the Ministry of Education, as stated in the Minister of
Education’s preamble to Involvement, Partnership and Responsibility,
is
that “a school must prepare its students to live as citizens with equal
rights in a democratic society ... Despite the differences
between the
obligations and rights of a school child and those of an adult citizen, they
nevertheless share a common denominator:
At every stage of our lives and in
every situation, none of us has rights without incurring obligations ... we may
not expect an
individual to fulfill his obligations if his rights are not
respected, if he is not treated with dignity and fairness. This is the
dual
educational message that ... [we] must impart to our students, in word and
primarily in deed”.
- Involvement,
Partnership and Responsibility, published in 1992 on the initiative of the head
of the Pedagogical Secretariat, was prepared
by Ministry staff, national student
council representatives, teachers, principals, and supervisors. This document
the most progressive
in Israel in formulating the rights of school children
upholds the principle of individual freedom and draws a parallel between
the
rights of an individual in society and the rights of a student in school. The
document also drew a parallel between school life
and the educational and
cultural norms of Israeli society, which are founded on human dignity, equality,
individual fulfillment,
liberty, and freedom of speech.
- Furthermore,
the document aimed to uphold the rights of the individual student, while
defining his obligations and areas for his involvement,
partnership, and
responsibility in the planning, organization and implementation of forums
concerned with school life. It acknowledges
the right of the student to express
his opinion, criticize, and suggest improvements concerning school life,
and the obligation of
the school to provide him with opportunities to do
so.
- Following
are the rights and obligations of children and youth in the education
system.
(i) Freedom of speech
- It
is the policy of Israel’s education system to allow students to express
themselves orally and in writing on any aspect of
life, and to express personal
opinions, even on controversial issues (such as politics and diplomacy), with
respect for the rules
of debate and polite speech.
- The
production of a student newspaper in the framework of school is one expression
of students’ freedom of speech. Student
newspapers are published in
accordance with the rules, regulations, and professional ethics upheld by the
Ministry of Education.
Certain restrictions apply to students, as they do to
adults: Incitement to violence or racism is forbidden, as are expressions
that
disturb the public order, insult human dignity or belief, or constitute
libel.
- The
Ministry of Education forbids students from participating in political and
social demonstrations during school hours. However,
students are allowed to
assemble and demonstrate on matters that concern their education. Students have
the right to assemble in
representative bodies, such as student councils and
committees. According to a 1996 survey conducted by the Central Bureau of
Statistics,
student councils are active in 65% of secondary schools; they are a
venue through which students can express their needs and opinions.
Student
councils comprise elected representatives, who express the needs and opinions of
all students and uphold their rights before
teachers and the school
administration; they also initiate activities for the good of the student body.
The education system supports
student councils and attempts to increase their
involvement in both the organization and climate of school. During the 1997/98
school
year, student councils initiated strikes in some districts, in protest
against sanctions imposed by teachers that caused the cancellation
of all
outofschool activities (e.g., field trips). The national student council
was also involved in making changes in the format
of matriculation
examinations.
(ii) Privacy
- In
accordance with article 16 of the Convention on the Rights of the Child
(preservation of privacy), a student’s right to privacy
is protected by
the guidelines of the Ministry of Education. According to these guidelines, any
action or disclosure that is liable
to violate a student’s privacy must be
avoided. Preservation of privacy in school is reflected in the discretion with
which
a student’s personal, medical or academic file, or other data, are
handled, and in the confidentiality with which any communication
between a
student and a teacher, counselor or psychologist, or any knowledge they may have
of a student (e.g., his grades, psychological
assessment) are treated.
Under the Privacy Protection Law 1981, authorization to review such confidential
documents is granted only
to school staff, a student’s parents, Ministry
of Education supervisors, and other staff so authorized.
- Information
about a student may not be published or disseminated to an agency that is not
authorized to receive it. Further, the
use of computerized school data bases is
forbidden unless written authorization has been obtained from the education
system, the
student (once he has reached the age of 18), or the student’s
parent (if the student is a minor).
- Research
on students requires the authorization of their parents or of the chief
scientist of the Ministry of Education. Providing
information about a student
to an agent not authorized to receive it is a criminal offense. Any educational
professional who publishes
information concerning his work is forbidden to use
names or otherwise identify students.
- When
existing information is sensitive (e.g., the pregnancy of a minor, or a
criminal offense committed by a minor), the student’s
permission should be
secured before the information is transmitted. If transmission of the
information is liable to harm the minor,
the school principal will be
responsible for handling the matter; he or she is also required to preserve the
medical confidentiality
of a student who carries the AIDS virus, and is charged
with protecting the rights of that student.
- A
school is obligated to keep all psychological assessments confidential.
Referral to psychological testing is conditional upon the
consent of a
student’s parents. A student may initiate consultation with the school
psychologist; the psychologist is only
required to tell the student’s
parents about the student’s selfreferral if more than two therapeutic
consultations take
place. The psychologist may report the outcome of
psychological tests and assessments to the student’s parents only if doing
so does not contravene the student’s best interests.
- As
noted, the Pupils’ Rights Law 2000 addresses the obligation to
confidentiality in all matters pertaining to students, and
requires any
individual who receives information about a student in the process of performing
a legally appointed job to keep this
information secret and not reveal it except
for the express purpose of performing his job.
- In
a memo issued in November 2000, the DirectorGeneral of the Ministry of Education
addressed the issue of searching a student’s
belongings for weapons.
According to the memo, the principal or vice principal of an educational
institution may authorize a search
for weapons among a student’s
belongings by a police officer or guard legally empowered to conduct such a
search, if it is
suspected that the student is in possession of a weapon or
weapons and if no other means has been found of locating said weapons.
The memo
stipulates that the search must be conducted in a manner that preserves the
rights, privacy and dignity of the student,
and that it must be limited to a
search for weapons only. The reasons for conducting the search, and its
outcome, will be recorded
on a special form, which will be transmitted to the
supervisor of the educational institution.
(iii) Receipt of information
- Involvement,
Partnership and Responsibility emphasizes a student’s right to receive
information about him that is held by the
school. A recommendation has been
made to enable students to receive all information about the rules and
regulations according to
which the school operates. There are no guidelines for
students who wish to review directorgeneral’s memos, although the court
has ruled that any individual may review them. The Supreme Court has ruled that
it is important to publish the policy and guidelines
that obligate all education
frameworks, so that teachers, parents and students may be aware of
them.
- Copies
of directorgeneral’s memos are distributed to all schools, pedagogic
centers, and the Ministry of Education information
center. Claims have been
made that students and even teachers and principals are unaware that such
memos are issued.
- The
Pupils’ Rights Law 2000 requires that its contents be made known to
students and parents at the beginning of every school
year. The law also
requires informing students and their parents of directorgeneral’s memos
to schools, and of the memos of
school principals regarding the rights and
obligations of students, including rules of discipline.
(iv) The involvement of students and parents in school
life
- The
involvement and participation of students and their parents in school life is
defined by Ministry of Education policy as being
their right. The Ministry of
Education’s guidelines encourage the implementation of article 12 of the
Convention, which stipulates
that a student must be ensured the right to express
his opinion regarding all matters concerning him; his opinion must also be given
due weight. In other words, students must be informed of decisionmaking
processes concerning them, and must be allowed to appeal
both the process and
the decision. To this end, the school must allow students to be heard regarding
decisions of concern to them,
such as their placement in a class, the
development of study tracks, the level of education, grades on matriculation and
other examinations,
punishment and suspension, and cheating. The hotline
established by the ombudsman for students, described below, reflects the
Ministry’s
commitment to enabling students to realize this right. In
addition, the Ministry encourages students and parents to become involved
in the
planning and organization of school life. Involvement, Partnership and
Responsibility, as noted, defines areas for the participation,
involvement and
responsibility of students in making and enforcing decisions concerning schools
and pedagogic centers.
- Students
and their parents are partial partners in decisions concerning schools. Under
the State Education Law, the curricula in
formal educational institutions are
set in accordance with Ministry of Education guidelines and the unique character
of each school.
Students and parents may influence aspects of the curriculum
through supplemental programs, which represent 35% of the total school
curriculum. Involvement, Partnership and Responsibility suggests letting
students and parents become involved in determining the
subjects of study
(choice of trends, tracks and levels of study, elective courses), as well as
taking into consideration the students’
capabilities when determining
these. Nevertheless, only a few students and parents realize this
right.
- Greater
openness to the involvement of parents in school activity is a feature of
community schools, whose curriculum is determined
by school staff in cooperation
with parents. Community schools require, and hence facilitate, joint
decisionmaking regarding school
policy among representatives of the
school’s school administration, teachers, parents, and students, the local
authority and
other community institutions. Community schools are founded on
the belief that parents have the right, and the obligation, to be
partners in
their children’s education.
- According
to Ministry of Education guidelines, every school must publish regulations
regarding the rights and obligations of students
and disseminate them among
students and parents. According to Involvement, Partnership and Responsibility,
students must be allowed
to help set regulations and express their opinions and
needs.
- A
1995 analysis of 70 sets of elementary and secondary school regulations revealed
a gap between the recommendations of the Ministry
of Education and actual
regulations: Most school administrations perceive regulations as a set of
instructions to students regarding
the rules of behavior that enable the school
to be run efficiently. Often, regulations do not emphasize the rights of
students or
the obligations of the school. This would indicate that the
Ministry’s recommendation that regulations present the individual
as
having both rights and obligations has not been fulfilled (Zidkiyahu,
1995).
(b) Dissemination and implementation of individual rights in
the education system
- The
Ministry of Education and agencies that field public referrals or address civil
rights are working to disseminate the rights of
the child and implement them in
the education system. Since publication of Involvement, Partnership and
Responsibility, tens of
schools have begun to implement the school convention
that is based on that document. The convention does not obligate the schools
as
do directorgeneral’s memos, but rather makes recommendations, which
schools may accept or reject.
- The
Ministry of Education has developed an educational study program, entitled
“Rights for All Ages”, which disseminates
to secondary school
students their rights and obligations within the school system. The program
defines students’ rights in
various social frameworks (family, school,
peer group, society) and clarifies the limitations of their rights in these
frameworks;
it provides information on agencies and individuals that help
children and youth whose rights have been violated; and it encourages
youth to
become involved in making sure their rights are duly considered. This program
is used informally and in civics classes.
Since the program is not compulsory,
there are no data on the extent of its implementation.
- In
1990, the Ministry of Education established a “hotline” to promote
the needs and rights of students in the education
system. The hotline handles
specific complaints about injustice or discrimination against students
(e.g., unfair treatment, unjustified
punishment, physical or verbal
violence). The hotline serves children of all ages, from preschool through
college, and enables students
to maintain their privacy and avoid discrimination
or harm that might arise if they turned to someone at their school. A student
may call the hotline himself or may ask someone else to call on his behalf.
Hotline staff are obligated to maintain confidentiality
and
privacy.
- The
hotline staff is composed of educators, teachers, counselors, psychologists,
supervisors, and administrators. They must comply
with the Convention on the
Rights of the Child. In addition to meeting the needs of students, the hotline
serves the system by increasing
staff awareness of the rights of children;
helping design educational policy, change regulations and write
directorgeneral’s
memos; writing the convention that regulates relations
between
teachers and students in secondary schools; and proposing legislation and
regulations regarding the welfare and wellbeing of children.
The hotline holds
workshops for school staff and student council members, which inform, change
attitudes, and intervene concerning
children’s rights.
- In
addition, the hotline published a compilation of directorgeneral’s memos,
entitled School Regulations The Rights and Obligations of Teachers, Students
and Parents. The goal of this publication was to implement the right of
students to information (article 17 of the Convention on the Rights
of the
Child) and to make educators aware of Ministry regulations and of their
obligations to students. At the same time, the hotline
disseminated the full UN
Convention. In 1998/1999, the central theme of the school year was “the
right and the obligation
to respect”. The hotline was a partner in the
steering committee established by the Pedagogical Secretariat to implement this
theme.
- There
has been a steady increase in the number of calls to the hotline: from about
300 calls in 1990 to 4,719 calls in 2000. Students,
parents, education and
welfare staff, and counselors call the hotline. To date, there are still more
calls from parents than from
students: 40% of the calls are made by parents,
while only 35% of the calls are made by students and 25% of the calls are made
by
others. Nevertheless, the data indicate an increase in the percentage of
calls made by students, from 18% in 1998 (Ministry of Education,
2000). The
issues most commonly raised are truancy, teaching and studying, students with
special needs, new immigrants, violence,
sexual harassment, behavior, discipline
and punishment, and personal problems.
- In
1995, the National Council for the Child published a guide to the rights and
obligations of students in educational institutions,
based on
directorgeneral’s memos. It was hoped that dissemination of the guide
would increase the awareness and knowledge
of students, school staff, and
parents regarding the rights and obligations of students.
- Information
about students’ rights is also disseminated through information centers
for children and youth operated by several
agencies, including the Ministry of
Education, the National Council for the Child, and the International
Organization for the Rights
of the Child. These centers empower children by
informing them of their rights and channels of action, counseling them about
their
rights in schools and other settings, and providing information to the
agencies that serve them. The centers ensure that the legal
rights of children
are respected and preserved.
- Students
can receive information about their rights in school from other agencies, such
as the information center on the rights of
the child established by the Israeli
section of Defense for Children International (DCI), which provides students
with information
and legal consultation regarding difficulties that arise in the
school system.
- The
Ombudsman for Youth of the National Council for the Child is yet another address
for students and the agencies that serve them,
which protects and helps realize
children’s basic rights. About onequarter of the referrals to the
ombudsman in 1998 concerned
education. There has been an increase in the number
of children who seek the assistance of the ombudsman, due to advertisements
and
articles in children’s magazines, lectures, and the distribution of
leaflets at schools. Young children usually seek redress
for infringement of
their rights at school. Other referrals concern the lack of an appropriate
educational framework for some children,
who may be precluded from attending
school for months; and the inappropriate attitude of educational staff toward
students. Specifically,
students complain about physical, mental and emotional
violence on the part of preschool, elementary and secondary school teachers,
principals, and others. In one case, a parent’s complaint about a
teacher’s physically harming his child was investigated
by the police.
Students also lodge complaints against teachers who have insulted or humiliated
them. The National Council for the
Child, in cooperation with an industrial
corporation, has established a mobile rights unit, which visits schools and
disseminates
the rights of children (see Chapter III).
(c) Discipline and punishment in school
- According
to article 29 of the Convention on the Rights of the Child, the disciplinary
regulations implemented in schools must respect
children. The Ministry of
Education has anchored in law a teacher’s authority to impose punishment,
and has published guidelines
regarding alternative ways of addressing
disciplinary infractions, as well as the rights of students suspected of
such.
- According
to these guidelines, a school is forbidden to infringe on these rights; students
and parents must be informed about students’
suspected of breaches of
discipline, and the essence of the alleged offense. They and their parents must
be allowed to explain their
behavior. In addition, parents must be informed
before severe punishment is meted out; such punishment must also be authorized
by
the principal or a Ministry supervisor. A school is forbidden to permanently
expel a student of compulsory school age; if it wishes
to expel a student, the
school must inform the parents of its intention, and help find an alternative
framework for that student.
- The
Compulsory Education Law 1949 forbids an educational institution from punishing
a student for an act or infraction committed by
his parents (such as failure to
pay a fee to the school).
- According
to the guidelines of the Ministry of Education, teachers are forbidden to use
corporal punishment of any kind as a means
of discipline. In addition, teachers
are forbidden to utter verbally violent expressions (insulting or humiliating
comments). The
Ministry of Education views any expression of violence by a
teacher as a crime. In a ruling handed down in 1994, the Supreme Court
declared that “physical violence toward a student is forbidden ... his
body and soul may not be dealt with wantonly. His dignity
as a human being is
offended if his teachers use physical violence against him ...”. As
stipulated by the Pupils’ Rights
Law 2000, discipline must be imposed in a
manner commensurate with respect for human dignity. In this context, students
have the
right not to be subjected to corporal or humiliating punishment.
- Principals
are required to report to a Ministry supervisor and district board of education
chairman any physical violence perpetrated
by a teacher against a student.
Referral of the case to the police does not exempt the principal and supervisor
from their obligation
to educationally and professionally address the event.
Disciplinary action against a teacher who has committed an act of violence
is
taken under the provisions of the Civil Servants (Discipline) Law 1963, which
allows for the suspension of a teacher. Corporal
punishment is a more prevalent
means of discipline in Arab and haredi schools than in other Jewish
schools.
(d) The school climate and violence in schools
- Studies
indicate that the school climate affects the physical and mental health of
students in the present and future. The interaction
between teachers and
students and among students, and the students’ perception of school rules
and regulations are only a few
of the factors that influence the welfare and
health of students. Studies have shown that students who do not feel they
belong in
their school or who are not involved in the decisionmaking process are
less satisfied with their school. Students who sense that
they do not
“belong” tend to avoid participating in school
activities.
- Surveys
of social welfare, health and risk behaviors conducted in 1994 and 1998 (see
Chapter VIII) examined the implications of school
climate for students. They
revealed that Israeli youth have a more negative attitude toward their school
system than do youth in
most of the other countries that participated in the
survey. Not surprisingly, then, Israel is ranked among the countries in which
only a small percentage of students like their school.
- Israel’s
youth’s perception of school is complex; a relatively large percentage
(38%) of Israeli youth feel they are involved
in setting their school’s
rules and regulations, and that these rules are not too strict (34%).
Nevertheless, the percentage
of students in Israel who feel that their
school’s rules are fair is low (44%), compared to students in other
countries.
- In
contrast, relatively large percentages of Israeli students reported that their
teachers take an interest in them as people, and
encourage them to express
their opinions in class (53% and 60%, respectively). For these
measures, Israel was ranked in the top
onethird of the countries participating
in the surveys. The percentage of students who felt they could receive
additional help if
they needed it (71%) was moderate, compared to the percentage
of students from other countries. The percentage of Israeli students
who
perceived their teachers’ attitude toward them as being fair (about 51%)
was lower than that of students in other countries.
This is consistent with the
students’ perception of the fairness of school rules.
- These
findings indicate a need for indepth consideration of how to improve the
relationship between students and their schools.
- The
surveys examined risk behaviors and injuries among Jewish students in grades six
through 11 in State and State religious schools.
The surveys revealed severe
verbal and physical interpersonal violence in schools: More than 50% of all of
the students in grades
six through 11 suffered at least once during the school
year from bullying, while one in every five students experienced aggression
three or more times during the school year (data from 1994 and 1998 are
similar).
- Close
to half of the students participated in bullying, harassment or teasing toward
another student during the school year. Seventeen
percent reported that they
participated in such an act three or more times during the school year. The
percentages of experience
with or participation in violent incidents gradually
decline with age, and are smaller among high school students. The prevalence
of
these phenomena is relatively great in Israel, which was ranked between fifth
and seventh (depending on the indicators) among
the countries that participated
in the survey.
- A
1994 directorgeneral’s memo dealing with violence determined that the
school, as an agent of education, must prevent violence
among students in and
outside its grounds. Schools are charged with prohibiting expressions of
violence, ensuring the physical and
psychological wellbeing of their students,
and swiftly and effectively addressing violent incidents in which students are
involved,
even if they do not take place during school hours or on school
property.
- A
recent study (Habib et al. 1998) of police treatment of minors and youth
uncovered dissatisfaction with the rates of reporting by
schools of violent
incidents that take place on their grounds. It was claimed that some schools
refrain from reporting violent incidents,
out of fear for their reputation.
Nevertheless, in recent years there has been an increase of 53% in the reporting
of violent incidents
among youth at schools; this may be due to increased
willingness to report such incidents, rather than to an increase in their
number.
- In
addition to reporting violent incidents to the police, schools are themselves
required to address them. A school must inform the
parents of the student
involved in the incident and involve them in decisions regarding their child.
If the best interest of the
child requires not informing the parents of the
violent incident or of the involvement of the police, the decision not to inform
them is made by the school principal and another professional (psychologist,
social worker, police officer).
- To
protect students’ safety, it is forbidden to carry weapons and dangerous
objects on school grounds. In a 1998 survey of
health behavior conducted among
students in grades six through ten, about onequarter of the boys and the girls
reported carrying
a weapon (such as a knife, club or pistol) during the past
month, for selfdefense. Fortyfour percent of the boys and 30% of the
girls
claimed that they had seen someone in their class carrying a weapon during the
past three months.
- A
parliamentary committee of inquiry (the Vilnai Committee) into violence among
youth found that daily violence among youth in Israel
is serious in its scope
and characteristics, and that action must be taken quickly to identify the
causes of violence and develop
programs to prevent it. The committee presented
its recommendations in 1999; they concerned the authority of the school
principal,
the development of programs to reduce and prevent violence,
guidelines for preventing weapons from being brought onto school grounds,
and
the establishment of a national system to monitor and periodically assess the
attainment of these goals. Pursuant to the committee’s
work, a
DirectorGeneral’s memo was disseminated, which addressed some of the
committee’s recommendations. However, recommendations
that would incur
expense are not cited in the memo and have not been
implemented.
- Concurrently,
the Ministry of Education allocated resources for the development of a program
to prevent violence among youth. Experimental
implementation of a program to
improve the school climate and prevent violence was begun (in five schools).
This program is based
on the constant distribution to students of questionnaires
on the level of violence and their sense of security at school; on setting
clear
rules for dealing with violent incidents; on involving the students, teachers
and parents in making these rules; on organizing
activities to improve the
climate at school; and on establishing school committees (comprising students
and staff) to
address violent incidents. The Ministry of Education is preparing for
broader implementation of the program. The Educational Psychology
Service is
also developing a series of lessons on coping with violence, teaching nonviolent
conflict resolution, and the like.
8. The integration of immigrant children and youth into
the education system
- Since
1990, about 800,000 immigrants have arrived in Israel, increasing Israel’s
population by 17%. While most of these immigrants
came from the former Soviet
Union, a unique group of some 70,000 immigrants came to Israel from Ethiopia.
In addition, immigrants
have recently arrived from several Eastern European and
Eurasian countries. Between January 1990 and December 1998, 231,000
children
up to age 18 arrived in Israel, representing 26% of the
immigrants. Of them, 21,000 were born in Ethiopia; they represent 58% of
the
immigrants from that country.
- The
integration of immigrant children and youth into the education system is a
unique and important challenge for both the schools
absorbing them and the
children and their families. As of late 1999, about 120,000 immigrant children
(ages six17) were studying
in the education system.
- The
process of immigration, characterized by a sharp and sudden transition from
familiar social and cultural norms to unfamiliar ones,
exposes the immigrant to
many potentially stressful situations. The obstacle presented by a new
language, the inability to understand
accepted behavioral norms, and the
shattering of traditional support systems, in addition to changes in employment
and economic status,
are all liable to cause tension, anxiety, and adjustment
difficulties. Children and adolescents often confront even greater
difficulties:
The need to cope with the demands arising from immigration, while
struggling with inner processes of maturation and forming a stable
identity,
make them even more vulnerable. Immigrant children and the education system
that absorbs them face the challenge of knowledge
acquisition in a new language
and culture, and the imperative of social integration.
- This
section will examine the integration of immigrant children into the education
system. We will present the main issues arising
from the need to successfully
absorb these children, the steps taken by the education system to this end, and
trends in the improvement
of the assimilation of immigrant children into the
education system.
(a) The integration of immigrant children into the education
system
- As
noted, immigrants who arrived in Israel during the 1990s may be divided into two
main groups: immigrants from the former Soviet
Union, and immigrants from
Ethiopia. Children in these groups face different problems of
absorption.
(i) The integration into the education system of immigrant
children from the former Soviet Union
- In
general, immigrants from the former Soviet Union are characterized by
particularly high educational and vocational levels, relative
to the population
of Israel. Difficulties arise primarily among adolescents, usually during the
last two years of high school.
Although the matriculation success rates of
immigrant youth who complete 12th grade are similar to those of veteran Jewish
youth,
their dropout rates are higher; consequently, the success rates of a
given class/year appear to be lower.
- A
study conducted by the JDCBrookdale Institute between 1994 and 1996 examined the
integration of immigrant youth from the former
Soviet Union into the school
systems of five towns. The study found great variance in the percentages of
youth who do not attend
school in each of the towns that participated in the
study between 8% and 23%. The percentage of youth age 17 who do not attend
school ranged between 20% and 40%.
- Another
problem which has attracted public attention is the rate of delinquency among
immigrant youth from the former Soviet Union.
In recent years, there has been
concern surrounding the constant increase in the numbers of these youth who have
criminal records;
the proportion of immigrant youth who have a criminal record
is greater than that of veteran Israeli youth (see Chapter X).
- Immigrants
from the Caucasus mountains are unique among all of the immigrants from the
former Soviet Union, in their background and
culture and in the difficulties
they face in the absorption process. Reports on the distress of immigrants from
the Caucasus led
to the establishment of an interministerial committee on these
immigrants in the mid1990s. The committee addressed the needs of
this
population from a comprehensive perspective, and formulated a plan to improve
the scholastic achievements of immigrant children
and youth from the
Caucasus.
- To
augment the work of the committee, a national survey of immigrant children and
youth from the Caucasus was conducted, with the
aim of examining their
integration into the education system (EllenbogenFrankowitz and Noam, 1997).
The study revealed that immigrant
youth from the Caucasus have particular
difficulty learning Hebrew and adjusting to school; they have very high dropout
rates. The
study also revealed that 25% of the youth do not attend a framework
that is under the surveillance of the Ministry of Education,
and that 10% of
those ages 1417 do not attend any framework at all. These percentages are much
higher than those for the general
Jewish population, only 4% of which does not
attend a framework under the surveillance of the Ministry of Education.
Furthermore,
the percentage of youth who intended to take all of the
examinations required for a matriculation certificate represented less than
20%
of the entire eligible cohort. (There are no data on the percentage of youth
who actually earned a matriculation certificate.)
Nevertheless, both the youths
and their parents ascribed a great deal of importance to successful completion
of school. Girls were
not found to be any less devoted to or interested in
studying than were boys.
- Some
schools with large concentrations of students from the Caucasus have instituted
special programs (e.g., “Megashrim”
and “Pele”) to
promote their integration, which are similar to programs used with the Ethiopian
immigrant population.
(ii) The integration into the education system of immigrant
children from Ethiopia
- Immigrants
arrived from Ethiopia in two main waves: “Operation Moses” in
19841985, and “Operation Solomon”
in 1991. The successful
integration of the children of these immigrants poses a challenge to Israeli
society. Several unique factors
encumber their integration into the education
system: First, the majority of these children lived in a nonindustrial society
in
Ethiopia; their parents worked primarily in agriculture or skilled trades
such as weaving, potting, or blacksmithing. Most of the
children did not attend
school, receiving only informal education; the few children who did attend
school were sent to the nearest
village or town, which was sometimes quite
distant. Not surprisingly, a significant proportion of them are illiterate in
their mother
tongue (Amharic).
- In
addition to the stress of immigration and the transition to a westernmodern
society, Ethiopian children and youth have encountered
practical factors that
have hindered their integration into the education system. For example, these
children usually transfer among
schools several times within their first few
years in Israel, as their families move among temporary residences until
settling in
a permanent one. Children who arrived during the second wave of
immigration, in 1991, have only just settled in permanent
housing.
- A
national study conducted among Ethiopian immigrant youth (ages 1218) revealed
that most of the youth are raised in families with
a difficult
socioeconomic background (Lifshitz et al., 1997a). About 18% of them
are raised in singleparent families, and about
onequarter of them live in
households with six or more children until they are 18. About half of the youth
have fathers who are
relatively old (age 55 and over). In addition,
parents’ employment rates are low; in about twothirds of the families
there
is no breadwinner at all. Older parents also lack command of basic skills
in Hebrew, which affects their ability to help their children
with school work
or communicate with school staff.
- The
economic hardship that is an outgrowth of this situation is reflected in the
lack of text books and resource books owned by Ethiopian
children, as well as
the lack of a quiet corner in which to do homework; about half of these children
lack essential school supplies.
- Following
“Operation Moses”, two decisions were made that influenced the
absorption of Ethiopian immigrant children into
the education system. The first
decision was to refer all Ethiopian immigrant children, beginning with first
grade, to State religious
schools. This decision was based on the assumption
that the immigrants came from a traditional society. The second decision was
to
refer the majority of Ethiopian immigrant youth to Youth Aliyah boarding
schools. This decision was made because many of the
youth arrived in Israel
without their parents, and even those who arrived with their parents faced
financial hardship. All immigrant
students who entered the school system
shortly after their arrival in Israel attended special ulpan classes,
where they learned Hebrew and study habits.
- These
decisions led to large concentrations of Ethiopian immigrant pupils in a
relatively small number of State religious elementary
schools, particularly
in towns where large
percentages of these immigrants settled. Many of these towns were themselves
poor, and geographically peripheral; some of them became
so thronged with
Ethiopian immigrants that they struggled to provide appropriate
assistance.
- As
noted, Youth Aliyah boarding schools were thought to be the best and most apt to
provide the education, remedial assistance, and
living conditions that Ethiopian
youth would need to assimilate into Israeli society. Because of their limited
educational background,
many of the youths were referred to vocational study
tracks, and/or to boarding schools with a low academic level. Consequently,
the
immigrants encountered veteran Israeli students from the most disadvantaged
sectors of society. This aroused public debate.
Moreover, concern was
expressed that removing the Ethiopian youth from their families would dissociate
them from their parents and
community, depriving their younger siblings of a
role model and their parents of aid.
- Following
“Operation Solomon”, the Ministry of Education disseminated a number
of guidelines to schools regarding the
absorption of immigrant students from
Ethiopia. These stipulated that all Ethiopian immigrant students should be
integrated into
regular classes; teachers who teach the immigrants should be
trained in innovative teaching methods, and taught about Ethiopian culture
and
traditions; the percentage of Ethiopian immigrant students should be limited, so
as not to exceed 25% of the class; and, in towns
with a large concentration of
Ethiopian immigrant students, the immigrants should be enabled to attend schools
at a distance from
their home, or to attend State schools, according to their
parents’ preference.
- During
the past two years, under pressure from voluntary and public organizations and
people in the field, efforts have been made
to ensure the integration of youth
into schools in their community of residence, the referral of youth to boarding
schools with a
high academic level and matriculation tracks, and the
identification and treatment of youth at risk. These efforts have increased
the
integration of Ethiopian immigrant students into middle and high schools in
their area of residence, reduced referrals to vocational,
nonmatriculation
tracks, and promoted referral to better boarding schools.
- Reports
of the Ministry of Education and findings from a national survey of youth
indicate that, in 1998/99, about 25,000 Ethiopian
immigrant students attended
preschools and schools. About 10,000 youth attended middle and high schools.
About half of the older
youth (ages 1518) attended boarding schools. The
majority (78%) of Ethiopian immigrant youth still attend State religious schools
under the surveillance of the Ministry of Education. Half of the students are
in relatively small classes (of up to 25 students),
which allows them to receive
individual attention; about onequarter of them are in classes with a large (51%
or more) concentration
of Ethiopian immigrant students. This phenomenon is more
prevalent in boarding schools. In addition, about twothirds of the youth
attending high schools are in fullmatriculation tracks.
- Scholastic
Achievements. At present, there is no comprehensive information on the
achievements of Ethiopian immigrant youth. However,
two key studies dealt with
aspects of the students’ integration into elementary, middle and high
schools.
- The
findings of an evaluation of the SHILUVIM Project in elementary schools in the
southern school district revealed significant gaps
in the achievements of
immigrant students (both the more “veteran” and the
“newer” immigrants) and those
of veteran Israeli students (Lifshitz
et al., 1997b).
- A
national study of the absorption of Ethiopian immigrant youth found that
twothirds of the Ethiopian immigrant students in grades
ten12 were in
matriculation tracks, academic tracks (38%) or vocational tracks that lead to
full matriculation (28%). However, only
onethird (35%) of the students study
for the number of points necessary to receive full matriculation. Most of the
high school students
reported a need for more or any assistance to succeed on
matriculation examinations (Lifshitz et al., 1997a).
- The
national study also revealed variance in the scholastic achievements of the
youth. A significant percentage failed key subjects:
19% failed in
Hebrew, and 32% failed in mathematics. However, a significant proportion also
had good achievements (that is, received
a grade of 80 or higher): 35% in
Hebrew, and 27% in mathematics. Most of them received special assistance. A
significant portion
of the more “veteran” immigrants, who are no
longer eligible for assistance, had difficulty with their studies. In addition,
a significant portion of the students who have difficulty do not receive any
assistance at all, for budgetary reasons.
- These
findings indicate a need for continued remedial assistance to Ethiopian
immigrant students, including those who have been in
Israel for a longer period
of time.
- Data
from the Ministry of Education indicate that the percentage of Ethiopian
immigrants who are “eligible” for a matriculation
certificate is
increasing from year to year, from 9% in the early 1990s to 28% in 1999.
Nevertheless, eligibility is still much
lower than that of the total Jewish
population in Israel.
- Dropping
Out of School. The percentage of Ethiopian immigrant youth ages 1417 who are
not attending a school that is under the surveillance
of the Ministry of
Education is 6.2%. These youth may be divided into three main groups: 2.6%
attend frameworks that are under
the surveillance of the Ministry of Labor and
Social Affairs; 1% do not attend school but are employed; and 2.6% neither study
nor
work. Dropout rates are particularly high among boys, and among the more
“veteran” immigrants (those who arrived before
1990), reaching 14%
of the veteran immigrant boys.
- Reasons
cited for dropping out of school were the desire to transfer to another boarding
school; lack of desire to attend a religious
school; social difficulties; and
the school’s initiative, following discipline problems or conflict with
teachers. About onethird
reported that they left school because they did not
succeed in their studies. Almost all of the youth who were not attending
school,
and their parents, reported that they would like to return to an
educational framework. It should be noted that the FIDEL Association
operates a
youth information crisis center in the Tel Aviv central bus terminal. The main
function of this center is to track down
Ethiopian immigrant youth who have left
their regular framework, and to reintegrate them.
- Two
additional phenomena that exist in significant proportions among Ethiopian
immigrant students, and that place them at risk, are
great mobility among
secondary schools (about 20% of the youth) and absence from school for
unjustified reasons at least once a week
(14%).
- However,
it should be noted that Ethiopian immigrant youth and their parents display
significant motivation and commitment to becoming
integrated into high school,
succeeding in military service, and acquiring higher education. This motivation
hints that, with appropriate
assistance, there is a good chance they will indeed
obtain an education.
- Diagnosis
of Ethiopian immigrant children as needing special education. Concern has
arisen that Ethiopian immigrant children have
been referred to special education
frameworks because diagnostic tools are not suited to their cultural background.
The decision
was thus made to conduct special diagnostic tests on Ethiopian
immigrant children who were being assessed for placement in the special
education system. These tests were conducted using “dynamic
diagnosis”, developed by the International Association for
the Advancement
of Learning Potential (the Feuerstein Institute) to uncover the ability to
change following learning.
- By
law, a translator is present at meetings of placement committees when the
presence of (Ethiopian immigrant) parents is required.
According to Ministry of
Education data, in 1996, about 600 (3%) Ethiopian immigrant children attended
special education frameworks;
this is similar to the percentage of children in
special education in the general population.
(b) Special efforts of the education system
- Awareness
of the educational, social, economic and other, unique difficulties that
confront new immigrants has led the education system
to make special effort on
behalf of this population. Specifically, the education system has taken the
following steps: it has opened
absorption classes and ulpans in schools,
which immigrants attend until they are able to be integrated into regular
classes; it has added weekly teaching hours
for every immigrant student in a
school; it has added remedial classes for immigrants in Hebrew language and
languagedependent subjects;
it has given dispensation to make matriculation
examinations easier and more accessible, for example by allowing immigrants to
be
examined in their native language; it has allowed immigrants to choose the
language of their country of origin as their second language
of study; it offers
immigrant students special seminars and summer sessions that combine learning
Hebrew with learning concepts in
Israeli culture, Judaism and Jewish heritage;
and it has instituted programs that ease the absorption process. In addition,
The
Ministries of Education and Absorption help immigrant students finance the
cost of education e.g., textbooks, field trips, cultural
activities which
is usually paid by parents.
- The
distribution of immigrants across schools is not uniform. Some schools have
absorbed a few immigrants, while others have a majority
of students who are
immigrants. The Ministry of Education grants additional assistance to schools
with large populations of immigrants,
especially when the immigrants’
eligibility for special assistance has expired.
This includes additional remedial teaching hours; tutorial assistance
during the school day and in the afternoon, provided by soldierteachers;
and
programs that combine study and socializing, such as the SHALHEVET Project
(integration of immigrants through social activity)
and Project 75 (a
systemwide project for absorbing immigrants).
- In
addition, inservice training on absorbing immigrants is provided to teachers;
classroom aids are prepared for all teachers, especially
those who teach
immigrants; a pedagogic center on immigrant absorption has been established;
Russianspeaking teachers are being trained;
and special teams are being
established in the Ministry of Education, in cooperation with other ministries,
to deal with the issues
of immigration and absorption.
- The
Ministry of Education also holds activities for immigrant youth from the former
Soviet Union and from Ethiopia who have not managed
to become integrated into
the education system, who have difficulty adjusting to school, or who have
dropped out. These activities
are provided through youth promotion units of the
Youth and Society Administration and the local authorities, particularly in
towns
with large concentrations of immigrants. They include social activities,
supplemental education and language acquisition, reintegration
into normative
frameworks such as school, and preparation for military
service.
- As
it recognizes the unique difficulties that face Ethiopian immigrants, the
Ministry of Education has made care of these students
a top priority, allocating
more resources for their absorption than for that of other immigrants. The
primary perquisites for Ethiopian
immigrant students are extension of the period
of eligibility for remedial study hours (an additional 1.75 hours of teaching
per
week), allocated to the school that has absorbed the student, and a
financial grant to purchase textbooks and other school aids.
Ethiopian
immigrants receive more hours of education than do immigrants from other
countries, and also receive subsidies for school
supplies and expenditures for a
longer period of time.
- During
their first year in school, and sometimes for longer, Ethiopian immigrants
attend special classes in regular elementary schools.
These classes are small
in size and attempt to accelerate the process of closing gaps, so that the
immigrants may be integrated
into regular classes as quickly as possible. Once
in the regular classes, Ethiopian immigrant children continue to receive special
assistance. Questions have arisen as to the efficiency of these classes and the
appropriateness of separating the children from
their peers, even for a limited
time.
- Despite
all of the special provisions made for immigrants, it appears their needs are
not being sufficiently met. Many immigrant
children who need assistance do not
receive it at all, or do not receive it in sufficient quantity.
- The
national study noted above examined the educational and economic assistance
provided to Ethiopian immigrant youth at school (Lifshitz
et al., 1997). The
study revealed that 59% of the youth received educational assistance at
school (remedial teaching in some subjects,
assistance from teachers after
school hours), or in an afterschool frameworks. Nevertheless, most (70%) of the
students both those
who were receiving assistance and those who were not
reported needing additional assistance to succeed in school. For one, a
significant portion of the Ethiopian children do not attend afterschool
frameworks, even though their parents cannot give them educational
support. For
another, there appears to be a lack of educational programs adapted to the
unique difficulties and needs of Ethiopian
immigrant students. The need to
increase such assistance and adapt it to needs is thus obvious.
- The
phenomenon of unmet needs was also found regarding economic assistance. About
half of the youths reported receiving various sorts
of financial assistance at
school, such as subsidies to purchase textbooks, funding for field trips and
extracurricular classes,
and coverage of medical costs. Nevertheless, about
half of them reported needing more financial assistance.
- The
study also found that only onethird of the teachers of heterogeneous classes
(immigrants and nonimmigrants) had been specially
trained to promote the
integration of Ethiopian immigrant students into their class. About half of the
teachers felt they needed
additional guidance, or constant consultation, to
better cope with the problems they encounter during their work with Ethiopian
immigrant
children.
- Special
programs were also instituted, with the help of JDCIsrael and the Association
for the Advancement of Education, to enable
the more gifted Ethiopian students
to attend better boarding schools in Israel. For example, some Ethiopian
students attend special
courses offered at adjunct preparatory institutes and
technological schools, which prepare them to take matriculation examinations.
Some attend the preparatory preacademic programs offered by universities and
colleges.
- The
departments of the Ministry of Education initiate and implement programs that
foster the integration of Ethiopian immigrant youth
into the education system.
Youth Aliyah, which absorbs a significant number of immigrant youth into its
boarding schools, has established
programs that integrate Ethiopian immigrants
into classes of veteran Israeli youth (e.g., SHILUV, MABAR), and enrichment
programs
for Ethiopian students that foster young leadership, reinforce
Ethiopian Jewish identity and heritage, and teach health
education.
- The
Youth Advancement Department of the Youth and Society Administration develops
educational and therapeutic programs for youth at
risk, and training programs
for youth counselors who are themselves immigrants from Ethiopia, and who work
with members of their
community.
- Recently,
various intervention programs have been developed to help government, public,
and voluntary agencies cope more efficiently
with the needs of Ethiopian
children in preschools, elementary and secondary schools. These programs are
implemented in schools
with large concentrations of Ethiopian immigrant
students, and emphasize the teaching of basic skills alongside social
integration.
In recent years, these programs have also focused on increasing
the familiarity of school staff with Ethiopian culture, and on efforts
to
involve the children’s parents. It should be noted, however, that these
programs are not implemented in all schools attended
by Ethiopian immigrant
students.
- In
order to address the unique problems of Ethiopian immigrant students, the
Ministry of Education established the Steering Committee
for Ethiopians in the
Education System in 1995. The Committee, half of whose members are Ethiopian
immigrants, formulates and implements
comprehensive policy on the absorption of
Ethiopian immigrants into the education system. It also coordinates among
agencies that
serve Ethiopian immigrant children and youth in the field of
education; formulates longterm policy on the treatment of Ethiopian
immigrant
students in the education system; and cooperates with members of the Ethiopian
immigrant community and organizations that
assist the
community.
- In
preparation for the 1998/99 school year, the Committee formulated an extensive
plan of action comprising projects for children
and youth that emphasize their
selfimage, identity, and ties to their heritage. It also comprised increased
inservice training for
teachers, individual and group work with parents,
increased integration of very young children into preschools, involvement of
Ethiopian
immigrant adults and children in informal frameworks, the hiring of
Ethiopian immigrant school aides, and the prevention of dropping
out.
- The
Committee sponsors a number of activities for youths age 1218, among them
enrichment clubs and afterschool frameworks, which it
hopes will keep the
children from dropping out and help them fulfill their potential. It also runs
programs for very young children,
systemwide programs in schools with large
concentrations of Ethiopian immigrants, and programs for outstanding
students.
- One
of the main problems integrating Ethiopian immigrant children into school is
that their parents are not aware of the demands school
makes on them, are not
involved in their education, and do not have contact with school staff.
Lifshitz et al. (1997) found that
parents are not sufficiently involved in
choosing their child’s school or in what happens to their child at school.
For example,
only 40% of the parents in the study had visited the boarding
school that their child would attend prior to registration, and the
majority of
mothers reported not knowing anything (39%) or very little (47%) of what happens
to their children at school. Although
about twothirds of the parents attend
parents’ meetings, these are problematic, as it is often the children
themselves who
translate what the teachers have to say; an interpreter is
present in only in a small proportion (14%) of cases. Alienation between
parents and the education system is even more pronounced at boarding schools.
One expression of parents’ lack of information
regarding their
children’s education is that 70% of the mothers of adolescents did not
know what a matriculation certificate
was.
- In
many schools, Ethiopian immigrant “facilitators” are employed to
reinforce the ties among school staff, parents, and
the local Ethiopian
immigrant community. In addition, the Department of Adult Education has
developed a program “bridging
old and new”, and offers courses for
parents that are led by a professional group leader and an Ethiopian immigrant
facilitator.
- A
number of public and voluntary organizations, in which Ethiopian immigrants are
also active, intervene to promote the integration
of children and youth into the
education system. At the head of this activity is the Coalition for the
Advancement of Education
for Ethiopian Immigrants, in cooperation with the
Steering Committee. The Coalition was established in early 1997 to set
comprehensive
educational policy and priorities, and to raise funds. Headed
by JDCIsrael, the Coalition comprises government ministries, voluntary
organizations and foundations that advance this goal. The Coalition began work
in ten towns with large Ethiopian
immigrant populations, with the aim of promoting the scholastic achievements
and social integration of Ethiopian immigrant children
and youth, while
coordinating among the agencies in this field and developing comprehensive
policy.
- The
following are among the other agencies active in this field:
− ALMAYA The Association to Promote the Family and the Child in the
Ethiopian Community in Israel implements a number of intervention
programs for
very young children and involves parents in preschool activities.
− The North American Council on Ethiopian Jewry (NACOEJ) implements
projects that promote the integration of children into
elementary and secondary
schools. These include “finance high school”, which gives
scholarships to high school students
who are interested in remaining in their
community of residence; “twin bar mitzvah”, which matches Ethiopian
immigrant
children with children from the Diaspora; and “extended school
day”, which provides students with remedial lessons and
help with
homework.
− The Fidel Foundation primarily trains Ethiopian immigrants to work as
facilitators with school staff, and youth and their
parents.
− The Umbrella Organization of Ethiopian Immigrants is involved in various
projects, and finances the integration of children
into preschools.
− The Israel Association for Ethiopian Jewry (IAEJ) monitors government
activity and lobbies to promote the integration of
Ethiopian immigrant children
and youth into the education system.
(c) Social integration
- An
important goal of Israel’s absorption policy is the social integration of
immigrants and veteran Israelis, and of different
groups of immigrants. A great
many programs in and outside of schools promote this goal. Nevertheless, there
are many reports of
alienation between veterans and immigrants, as well as
reports of conflict and violence. Studies conducted by the JDCBrookdale
Institute
on immigrant youth from the former Soviet Union, from the Caucasus,
and from Ethiopia have provided a glimpse of these youths’
feelings and
perspective. A distinction should be made between the youths’ perception
of relations, and their personal relationships.
In general, most immigrant
youth see relationships with Israelis as being problematic sporadic,
confrontational, and mutually antagonistic.
Ethiopian immigrant youth tend to
see things in a more positive light than do those from the former Soviet Union,
although they
do not deny that relations are problematic. On a personal level,
in contrast, the youths have a much more positive perspective.
Most immigrant
youth report having at least one Israeli friend, and viewing the attitude of
Israelis toward them as being positive;
they do not report being victims of
taunting or violence. Many immigrant youth report spending time with Israeli
youth outside of
school. This would indicate that the goal of integration is
gradually being attained, although many difficulties remain. Israel’s
youth movements, the Society for the
Protection of Nature, the Department of Police and the Community, and the
Association of Community Centers are working to cultivate
leadership and
involvement among immigrant youth.
9. The Arab education system
- In
1998, there were about 516,000 Arab children up to age 17, constituting 25.3% of
all of the children in the State of Israel. Of
them, 294,698 Arab children
attended school, comprising 18.4% of all school children. In 1998, children in
the Arab sector represented
24% of all elementary school children and 17.8% of
all secondary school children (BenArie and Zionit, 1999).
- A
number of factors present special challenges to the Arab education system in
Israel. These factors may be divided into two types:
intrasocial factors, and
external factors. Intrasocial factors include family size, parents’ level
of education and socioeconomic
status, cultural and social changes
(socialcultural transition).
- External
factors include the need of Arab students to learn three languages (Arabic,
Hebrew and English), and significant gaps in
the investment in education in the
Arab and Jewish sectors. These gaps are reflected in both the more limited
investment by the
government, as well as in the more limited resources provided
to the education system by the local authorities and the children’s
parents. Analysis of information provided by the Ministry of Education revealed
that, in 1991, the total investment in education
per pupil in Arab
municipalities was approximately onethird of the investment per pupil in Jewish
municipalities. Government investment
per Arab pupil was approximately 60% of
the investment per Jewish pupil. The remaining gaps are a result of very
limited investment
on the part of the local authorities (less than 20% per
pupil, compared to the Jewish sector) and the insignificant contribution
by
parents. The gaps in government allocation are mainly a result of more limited
allocation to enrichment and extracurricular activities
such as libraries,
programs for weaker students, cultural activities, and counseling and support
services. The more limited investment
by local authorities and parents can be
ascribed to the dire financial state of the Arab local authorities, as well as
to the higher
level of poverty among Arab families. It is important to note
that in many cases, allocation of government funding for extracurricular
activities, special programs and support services is dependent on matching funds
provided by the local authority and parents. As
such funds are not available in
the Arab local authorities, services of this type are often not implemented in
the Arab education
system.
- Since
the establishment of the State, changes have occurred in the Arab education
system, which has gradually become open to all segments
of the Arab population.
There has been an increase in the number of schools, in teacher training, in
attendance rates, and especially
in the education of girls. Yet despite these
changes, gaps in most areas remain.
- In
this section we will review characteristics of and developing trends in the Arab
education system, and discuss attendance and dropout
rates, scholastic
achievements, the investment of resources in education, education services, the
training and education of teachers,
and the special education system.
(a) The structure of the education system
- Among
the Arab population, we may distinguish different patterns of residence
(e.g., urban versus rural). The majority of the Arab
population lives in
villages and small towns, and it may be said that even those who live in larger
towns and cities lead a lifestyle
that is rural in character.
- About
80% of Israel’s Arab citizens are Moslems, 11% are Christians, and 9% are
Druze. The Arab education system is composed
mainly of public schools. Five
percent of the schools in this sector are private and are operated by
churches, but are open to children
of all denominations. These schools are
considered “recognized but unofficial” and, as such, are more
autonomous and
selective, on one hand, and receive more limited government
funding, on the other.
(i) Early childhood education
- Attendance
rates at early childhood education frameworks (day care, preschools and
kindergartens) are very low among Arab children
in Israel, compared to their
Jewish counterparts. In 1999, only 35% of the Arab children ages twofive
attended such frameworks,
compared to 86% of Jewish children the same ages. The
difference in attendance rates is evident in all age groups (see Table 51).
While twothirds of the Jewish children age two attend preschools, only 5% of the
Arab children age two do so. While almost all
(93%) Jewish fouryearolds attend
preschool, only onethird of the Arab children this age do. As noted,
kindergarten for children
age five is free and compulsory in Israel. Despite
this, the kindergarten attendance rate of Arab children age five is only 81%.
- There
are a number of reasons for the differences in the preschool attendance rates of
Jews and Arabs. The availability of preschools
in the Arab sector is relatively
limited, and there is a lack of preschool teachers and teacher training
programs. In addition,
there is no structured preschool program. This is a
result of the relatively small government investment in this sector, as well
as
of the fact that Arab local authorities have to finance the construction of
preschools and cover 25% of the tuition for municipal
preschools for children
ages threefour. As noted, Arab local authorities have financial difficulties
and a negative financial balance,
and cannot allocate the financial resources
necessary to construct preschools.
Table 51
Preschool attendance rates among different age
groups, by sector (in %)
|
Jews
|
Arabs
|
Total
|
86
|
35
|
2
|
68
|
5
|
3
|
89
|
23
|
4
|
93
|
34
|
5
|
94
|
81
|
Source: Central Bureau of Statistics, 2000.
- The
need for more preschools in the Arab sector is also a result of the increasing
number of Arab women entering the work force.
Therefore, in 1995/96, the
Ministry financed the construction of 100 precompulsory preschool classes
in the Arab sector. In addition,
following the recommendations of a special
Knesset committee, training for Arab preschool teachers was expanded: In 1995
and 1996,
the number of college classes to train Arab preschool teachers was
doubled, the professional surveillance of the Ministry was expanded
to cover
preschools, professional guidance was improved, and unique curricula were
developed.
(ii) Elementary and secondary education
- During
the past decade, the number of middle schools in the Arab sector has increased
by 43%, and that of high schools has increased
by 24%. During the past
decade, there has been an increase in attendance rates in the Arab sector, which
have risen from 67. 3%
to 78.9%. There has also been an increase in attendance
rates in the Jewish sector, but at a slower pace, such that the gaps between
the
sectors have decreased. However, in 1997/1998, the dropout rate of Arab
students remained five times as high as that of Jewish
students 20.7% versus
4.5%,
respectively (see Table 52).
Table 52
Attendance rates of youth ages 1417 in schools
under the surveillance
of the Ministry of Education, by sector (in %)
|
Arab sector*
|
Jewish sector**
|
1980
|
51.0
|
66.8
|
1995
|
67.3
|
95.9
|
1998
|
78.9
|
94.5
|
Source: BenArie and Zionit, 1999.
* Not including private schools and schools in East Jerusalem.
** Not including data on attendance rates in institutions under the
surveillance of the Ministry of Labor and Social Affairs.
- By
age 17, attendance rates have dropped to 68% among Arabs, while they are still
close to 90% among Jews.
Table 53
Attendance rates, by age and sector, 1997/98 (in
%)
|
Arab sector
|
Jewish sector
|
14
|
90.4
|
98.6
|
15
|
83.0
|
98.0
|
16
|
73.8
|
94.3
|
17
|
67.4
|
88.8
|
Source: BenArie and Zionit, 1999.
- A
trend of major significance is the increase in the attendance rates of girls,
and the closing of the gap in attendance rates between
boys and girls. During
the 1980s, 44% of Arab girls attended grades nine12. Within ten years, their
attendance rate had increased
to 71%, matching that of boys (70%; see Table 54).
By 1998, the attendance rate of girls had clearly exceeded that of boys (82% and
75%, respectively).
Table 54
Average attendance rates of Arab students in grades
912, by gender (in %)
|
Total
|
Boys
|
Girls
|
1980
|
51
|
58
|
44
|
1993
|
70
|
70
|
71
|
1998
|
79
|
75
|
82
|
Source: Sprintzak, 2000.
Not including private schools and schools in East Jerusalem.
- There
are notable differences in the attendance rates of groups within Arab society.
For example, the 12thgrade attendance rate of
the Druze is higher than that of
all Arabs, while that of Bedouin Arabs is lowest (76.0%, 67.3% and 49.7%,
respectively).
Table 55
12thgrade attendance rates, by sector, 1997/98 (in
%)
|
Attendance rate
|
Arabs
|
67.4
|
Bedouin in the Negev
|
49.7
|
Druze
|
76.0
|
Jews
|
84.2
|
Source: BenArie and Zionit, 1999.
(b) Scholastic achievements in the Arab and Druze
sector
- The
scholastic achievements of Arab children are lower than those of Jewish
children: In national examinations conducted in 1991
and 1992, children in the
Arab and Druze school systems scored lower than did children in the Jewish
sector. For example, the percentage
of children in the Arab sector who failed
the examination in arithmetic was more than twice that of children in the Jewish
sector
(Lavi, 1997; AbuAsbah, 1995).
- There
is also a gap between the Arab and Jewish sectors in the rates of eligibility
for a matriculation certificate: In 1997, about
21% of all Arab (including
Bedouin and Druze) youth age 17 were eligible for a matriculation certificate,
compared to 44% of their
Jewish peers
(see Table 49 above). (Differences were also found among segments of
the Arab sector. For example, 26% of the Druze, 18% of the
Moslems, 44% of the
Christians, and only 10% of the Bedouin were eligible for a certificate.) As in
the Jewish sector, the rate
of eligibility for a certificate is higher among
girls in the Arab sector.
(c) Resources in the Arab education system
- There
is a great deal of variance in the resources allocated to education in the Arab
versus the Jewish sector. These discrepancies
are reflected in various aspects
of education in the Arab sector, such as physical infrastructure, the average
number of students
per class, the number of enrichment hours, the extent of
support services, and the level of education of professional
staff.
- In
1991, the government established national and local committees to examine the
achievements of Arab students. These recommended
reinforcing educational
resources in the Arab sector, allocating more teaching hours per student,
matching the quality of teaching
in this sector to that in the Jewish sector,
hiring more teachers in the Arab system, and hiring more supervisors,
particularly of
Arabic language instruction.
- Also
in 1991, the Ministry of Education prepared a fiveyear plan whose aim was to
place the budgetary and educational standards of
the Arab sector on a par with
those of the Jewish sector. To this end, it suggested unified criteria for
allocating resources to
the Arab sector, relative to the Jewish sector, and
proposed integrating the Arab and Druze sectors equally and fully in all new
Ministry programs.
- In
the intervening years, the recommendation to match the budgetary standards of
the two sectors has only been implemented in part.
Significant gaps in the
budgets of the Jewish and Arab education systems have therefore remained.
- In
1998, a committee established to prepare a fiveyear plan, headed by
Professor Miriam BenPeretz, presented its recommendations,
which
addressed some but not all of the areas needing improvement. In July 1999,
the decision was made to implement the recommendations
of this committee for
19992003. The various departments of the Ministry of Education reviewed the
recommendations relevant to their
respective areas of responsibility, and the
Ministry began implementing them. The Followup Committee on Arab Education
claims that
the Ministry’s implementation has only been partial, and does
not encompass all of the recommendations presented in the original
fiveyear
plan. According to the committee, a budget of NIS 792 million is still lacking
(Followup Committee on Arab Education, 2000).
In addition, the fiveyear plan
did not at all address informal education, art and culture, despite the
extensive need in the Arab
sector.
(i) Physical infrastructure
- There
has been a large increase in the number of classrooms in the Israeli education
system in the past decade: In the Jewish sector,
the number of classrooms
increased from 29,448 in 1990 to 34,747 in 1998, and in the Arab sector, the
number of classrooms increased
from 6,720 in 1990 to 8,423 in 1998
(Sprintzak et al., 2000).
- According
to a 1996 report of The Followup Committee on Arab Education, the Arab sector
still lacks physical resources, especially
in the elementary school system,
despite the recent increase in the numbers of schools and classrooms. For
example, the number of
laboratories, workshops and sports facilities is still
insufficient. More than onethird of Arab children study in flammable and
dangerous structures. The situation is particularly severe in the Bedouin
sector, especially in the south of the country and in
the unrecognized
settlements, where few classrooms have been built.
(ii) Number of students per class and hours of
instruction
- Table
56 presents the differences in the average number of students per class between
the sectors. The average number of students
per class has remained higher in
the Arab than in the Jewish sector throughout the past decade. In 1998, there
was an average of
27 students in each class in the Jewish sector and 31 students
in each class in the Arab sector. Contrary to a trend of constant
increase in
the number of students per class in the Jewish sector, the number of students
per class (31) has remained stable in the
Arab sector over
time.
Table 56
Average number of students per class, by sector
(19801998)
|
Average number of students per class
|
Arab sector
|
Jewish sector
|
1980
|
31.1
|
25.8
|
1990
|
30.9
|
27.1
|
1998
|
31.0
|
27.1
|
Source: Central Bureau of Statistics, 1999.
- Hours
of instruction were added to the enrichment basket that, until five years ago,
was provided to Jews only. In 1995, an index
of disadvantage was introduced,
specifically to measure disadvantage in the Arab and Druze sector. The index
makes it easier to
aptly allocate resources to schools in the Arab sector, so as
to cultivate weak populations. In 1996, the average enrichment basket
for Arabs
had already reached twothirds of that in the Jewish sector. However, the
distribution of hours and budgets per school
is not equal in the two sectors,
and does not take into consideration the existing gaps between the two
sectors.
(iii) Support services
- Table
57 demonstrates the increase in support services in the Arab education system
between 1992 and 1996. The number of truant officers
in schools tripled, and
the number of extracurricular clubs grew. Positions were added for
psychologists, and students from the
Arab and Druze sector who had not
previously participated in the MABAR Program (which offers special assistance
with matriculation
examinations) were now able to benefit from it.
Table 57
Allocation of resources to different sectors,
19921996
|
Jewish sector
|
Arab sector (includes Bedouin)
|
Druze sector
|
Truant officers
|
|
|
|
1992
|
111.5
|
11.0
|
2.5
|
1995
|
167.0
|
30.5
|
7.5
|
Afterschool enrichment centers
|
|
1992
|
118
|
1
|
1
|
1995
|
412
|
33
|
5
|
Students in the MABAR Program (help with matriculation exams)
|
|
1992
|
708
|
|
|
1995
|
1 078
|
189
|
44
|
Educational psychologists
|
|
|
|
1992
|
475
|
2.5
|
1.7
|
1995
|
680
|
43.5
|
6.5
|
Source: Brandes, 1996.
Table 58
Percentage of schools having different support
services, by sector (1994/95)
|
Jewish sector
|
|
Elementary schools
|
Middle schools
|
Secondary schools
|
Elementary schools
|
Middle schools
|
Secondary schools
|
Guidance counselor
|
67.4
|
95.7
|
94.0
|
18.7
|
64.4
|
74.4
|
Psychologist
|
91.3
|
81.0
|
65.8
|
44.4
|
27.4
|
34.8
|
Social worker
|
63.4
|
60.6
|
52.7
|
27.7
|
23.3
|
40.8
|
Truant officer
|
64.7
|
72.8
|
61.1
|
51.1
|
64.4
|
53.5
|
Mentors*
|
55.2
|
10.2
|
25.0
|
37.4
|
5.3
|
18.5
|
Computerassisted learning
|
55.4
|
57.7
|
53.7
|
26.2
|
33.3
|
32.2
|
Study center
|
28.7
|
51.4
|
31.0
|
15.0
|
14.7
|
8.2
|
Inservice training for staff
|
88.8
|
84.9
|
82.2
|
59.4
|
65.3
|
74.0
|
Source: Central Bureau of Statistics, 1997.
* Such as
university students who help elementary school children (PERAH Program),
volunteers in big brother/sister programs, etc.
- Despite
the increase in the number of positions available for support staff (truant
officers, social workers, educational psychologists,
speech therapists),
support services in the Arab sector are still very inadequate, and are still not
commensurate with the percentage
of
Arab children and youth in the population. According to The Followup
Committee on Arab Education, 160 psychologist and guidance counselor
positions and 150 truant officer positions remain unfilled in the Arab sector.
According to the Committee, this issue has not received
sufficient attention in
the fiveyear plan. Table 58 indicates the discrepancies between the support
systems in each sector.
(iv) Manpower in the education system
- The
training, development, and level of education of teachers has a very significant
effect on their students’ levels of achievement.
The traditional teaching
methods and authoritative relationship between teachers and students that are
the norm in the Arab sector
have received extensive attention in every
discussion of the Arab education system. A comparison of the levels of
education of Jewish
and Arab teachers reveals that the academic training of
Jewish teachers is on a much higher level than that of Arab teachers. In
light
of the results of feedback examinations and the discrepancy in the failure rates
of Jewish and Arab pupils (on tests of reading
comprehension and arithmetic) in
1991, a committee established in 1992 recommended immediately reinforcing the
educational resources
allocated to the Arab sector. It also strongly
recommended that hours of instruction be added for Arab students and that the
qualifications
and training of their teachers be improved (Lavi, 1997).
- Recent
years have seen an increase in the number of teachers with academic degrees and
a decrease in the number of uncertified teachers
in the Arab sector, thanks to
the accreditation of the Arab Teachers’ Seminary in Haifa in 1996, and the
accreditation of the
Arab Teachers’ Seminary at Beit Berl in 1998.
Nevertheless, the percentage of Arab teachers with academic degrees is still
low, relative to that of Jewish teachers. According to the 2000 Statistical
Abstract (Central Bureau of Statistics, 2000), in 1997/98, 39.7% of all of
the teachers in the Arab education system had an academic degree,
compared to
59.5% of their Jewish colleagues. According to Sprinzak et al. (2000), 25% of
the elementary school teachers and 62%
of the secondary school teachers in the
Arab education system had an academic degree, compared to 38% and 72%,
respectively, of the
elementary and secondary school teachers in the Jewish
education system.
- The
Ministry of Education has established a framework for inschool, inservice
professional training in alternative teaching methods.
Resources invested in
training and development must also take into consideration school administration
and supervision, which are
crucial to school life. Rather than
“settling” for the training of teachers alone, resources should be
allocated to
train administrators and supervisors to be leaders in education.
(v) Special education
- The
attendance rates in special education frameworks in the Arab sector are lower
than those in the Jewish sector. This is a result
of the lack of special
education frameworks and classes, the lack of special education teaching hours,
the lack of professional supervision,
underdiagnosis of children who need
special education, limited awareness in the Arab sector of the importance of
education for the
disabled child, and insufficient awareness on the part of
parents of the needs of disabled children.
- The
percentage of children with special needs is 7.6% in the Jewish sector, compared
to 8.3% in the Arab sector. The percentage of
children with special needs
in the Arab sector may be an underestimate, due to the lower rate of detection
and diagnosis of children
with mild disabilities such as learning disabilities
or behavior problems in that sector. It is also important to note that the
percentage of children with severe disabilities is much higher in the Arab than
in the Jewish sector (5.4% and 3.3%, respectively;
Naon et al., 2000; see
Chapter VIII). There are no data available on the number of children in the
Arab sector who need to be diagnosed
for a learning disability. Key personnel
in the Ministry of Education have reported that an interuniversity committee was
recently
established to develop instruments for the diagnosis of learning
disability for use in the Arab sector. In addition, an Arab association
was
recently established at Aabelin College to construct diagnostic tools
appropriate for use in the Arab education system.
- It
should be noted that effort is being made to reduce the gaps in special
education between the Jewish and Arab sectors, under the
Special Education Law.
In recent years there has been an increase in the number of Arab students
attending special education: In
1997, 6,000 children attended special
education schools in the Arab sector, which was double the number who did so in
1985. In 2000,
the percentage of Arab children in the special education system
was 18% more fairly representative of their percentage in the total
student
population (21%). In addition, there has been an increase in the number of
special education classes in the Arab sector.
For example, between 1999 and
2000 the addition of special education classes in the Arab sector constituted
45% of the entire budget
earmarked for the addition of special education
classes. Despite the increase in Arab children attending special education
frameworks
and the increase in special education classrooms, special education
classes are still more crowded in the Arab than in the Jewish
sector.
- Not
all Arab local authorities offer extensive diagnosis, due to the lack of
educational psychologist positions. Moreover, the lack
of special education
institutions in the Arab sector often means that placement committee decisions
cannot be implemented. Children
who have been diagnosed as needing special
education do not necessarily receive it. Many disabled children in the Arab
sector do
not attend a framework appropriate for their needs. The study found
that thousands of children who need special education do not
receive it, and
that hundreds do not attend any framework at all, and remain at home. According
to the study, many special education
schools in the Arab sector do not meet the
minimum level or conditions required of an educational institution.
Consequently, special
education is “uniform”, and children with
differing needs are placed in the same class and receive the same
care.
- As
noted, there is a significant lack of professionals who can care for children
with disabilities. This impedes appropriate diagnosis
and treatment. A
significant proportion of disabled Arab children do not receive the pedagogical,
psychological, and paramedical
services, or the hours of instruction, for which
they are eligible. Many special education teachers lack appropriate training,
although
their number is diminishing due to the opening of suitable frameworks
of study.
- It
is also still necessary to develop continuing frameworks for children with
handicaps (especially the blind and deaf, physically
disabled, and those with
severe behavior problems); academic and vocational tracks in special schools;
and curricula for special
education schools in the Arab sector. The Department
for Training of Manpower in Education has allocated NIS ten million
annually
for the years 20012006 to train teachers and other staff to work in
special education in the Arab sector.
(d) Programs for weak students and drop outs in the Arab
sector
- As
indicated elsewhere, the dropout rate among Arab youth is high, and remains one
of the most difficult problems confronting the
Arab education system.
Nevertheless, this rate has been declining slowly. One of the implications of
the decline in the dropout
rate is that schools must address a population with
more educational difficulties. This increases the importance of investing in
programs for disadvantaged youth within schools.
- As
a rule, only a small number of the programs for weak students and drop outs are
implemented in the Arab sector. The Arab education
system has not received
reinforcement hours for projects for weak populations from the Department of
Social Welfare. In 1997, the
Followup Committee on Arab Education, through
Adalah The Legal Center for Arab Minority Rights in Israel, appealed to the
Supreme
Court in its instance as the High Court of Justice to instruct the
Ministry of Education and the government of Israel to implement
these programs
in Arab towns and villages. The State reported that it would implement the
programs gradually during the coming five
years; this was reflected in the 1998
budget for education. It should be noted that the Ministry of Education employs
two different
indices of disadvantage for the Jewish and Arab sectors. In order
to address the needs of weaker Arab students, these indices should
be unified,
and a policy instituted of differential distribution of hours of instruction,
based on the needs of the individual student
(see Kahan and Yelenick,
2000).
(e) The education system in the Bedouin sector
- The
Bedouin sector in the south of the country is the weakest of all of the
population groups in Israel. The largest gaps in education
may be found in this
sector, which suffers from dire problems that prevent it from developing and
improving the level of services.
The extremely high natural reproduction rate
of the Bedouin requires swift expansion of the education system, which involves
building
classrooms and adding appropriatelytrained teachers. It is important
to distinguish between the situation of the Bedouin in the
north and in the
south, as that in the south is more desperate.
- That
a significant portion of the Bedouin population does not live in permanent
settlements adds hardship to legal and organizational
difficulties (see Chapter
VIII). Schools attended by Bedouin children are located both in permanent
settlements (where they were
established by the State), and in unplanned,
unrecognized encampments and settlements. The latter are well below par: Their
budgets
are low, they lack appropriate buildings or even electricity and water,
in some cases, and they lack appropriate supplies and equipment.
Schools in
permanent settlements are better equipped and in better physical condition, but
they lack equipment such as laboratories,
and the level of crowding in them is
very high. There is a severe shortage of compulsory kindergartens or preschools
for this population.
- The
Bedouin education system also lacks teachers with suitable training. According
to the Ministry of Education, in 1994, 23% of
the teachers in Bedouin schools
were uncertified. As it is not currently possible to find an appropriate number
of teachers from
within the Bedouin population itself, Arabicspeaking teachers
are often recruited from the north of the country. However, these
teachers do
not persevere in their work in the south, and this also reduces the level of
education. Opening preparatory courses
for graduates of 12th grade from the
Bedouin sector and providing additional incentives to teachers from the north
may help, although
it will not meet all needs. The new fiveyear plan developed
for the Bedouin population, which began to be implemented in 1998, addresses
this issue.
- The
low level of education is related to many factors: the limited resources
available for education in the Bedouin sector, especially
in unrecognized
villages, the destitute financial state of the Bedouin community, and the lack
of programs to increase the community’s
awareness of the importance of
education. According to a report from 1996, the percentage of Bedouin students
eligible for a matriculation
certificate in 1994/95 was 6% (AbuSaad,
1998).
(f) The status of Arabic language and culture
- Arab
children and Jewish children attend separate schools. The instruction in Arab
schools takes place entirely in Arabic. Hebrew
is taught as a second language
beginning in the third grade, and English is taught beginning in the fourth
grade. The curricula
for the maths and sciences used in the Jewish sector are
usually translated into Arabic. A number of unique curricula, such as history,
Arabic language, and Arab heritage are taught in all segments of the Arab
sector; several hours per week are set aside for the study
of religion (Islam,
the Druze religion, Christianity) by each segment of the population.
10. Informal education
- In
addition to what is taught in schools, a great deal of emphasis is placed on
“informal” education in Israel. The goals
of informal education are
to teach positive values, promote social skills, increase involvement in and
identification with the community,
provide an opportunity for social integration
and socialcultural enrichment, and offer supplementary academic
assistance.
- The
Youth and Society Administration of the Ministry of Education is responsible for
implementing informal education programs in and
outside of schools. Public
agencies such as community centers and youth movements are also part of the
informal education system,
and receive budgetary and professional support from
the Administration.
- In
this section, we will review the informal education system in Israel. First, we
will review informal education programs in schools,
and then we will review
informal education programs outside of schools.
(a) Informal education in schools
- Informal
education in schools encompasses a variety of programs.
(i) Weekly homeroom hour
- At
all schools under the surveillance of the Ministry of Education, one hour a week
is “homeroom hour”. During this hour,
the homeroom teacher raises
issues and engages the class in activities that are outside the scope of the
curriculum. Homeroom hour
may be devoted to social issues that affect the
class, issues of national concern, or interpersonal issues of interest to the
students.
Activities are adapted to the students’ grade level.
- The
Youth and Society Administration of the Ministry of Education has developed a
variety of structured programs, which are meant
to help teachers engage their
class during homeroom hour. The programs address complex issues, and guide
teachers in fostering an
open dialog with their students, which will enable the
students to openly express their opinions and feelings. Programs deal with
preparation for military service, the rights and obligations of students,
student and youth leadership, and the like. They are meant
to cultivate
fairness in the school environment; open channels of communication and engender
mutual respect; impart the social skills
needed for life in a democracy and
enable students to experience democratic processes and leadership; and enrich
the students by
exposing them to culture and art.
(ii) Special social programs
- In
most schools, social programs are implemented to reinforce positive values
(e.g., democratic values) and social skills, and prevent
the development of
problematic social phenomenon (e.g., violence, drug abuse). One example is
the “life skills” program,
which was developed by the psychological
counseling service, the Curriculum Department, the Department of Elementary
Education and
the Department of Religious Education of the Ministry of
Education. The “life skills” program encourages dialog between
teachers and students, inculcates decisionmaking skills, and gives students a
deeper understanding of themselves, others, and current
events. The “life
without drugs” program is implemented in schools by the Youth and Society
Administration, in cooperation
with the Authority to Fight Drugs. Because the
choice of using this program rests with the school principal, its implementation
varies from year to year.
- Another
program offered by the Youth and Society Administration and implemented in many
schools around the country is the SHELACH
(Nature, Land and Society) Program.
SHELACH fosters a sense of belonging to the country and the State, and
encourages youth to fulfill
their national and civic obligations. SHELACH
comprises a variety of activities outside the classroom (e.g., nature
hikes), including
activities conducted in cooperation with the IDF to prepare
youth for their military service. In 1996, SHELACH activities were held
in 671
schools.
- The
CRB Foundation facilitates the implementation of enrichment, tutorial, and
social action programs in schools. Close cooperation
among schools, parents and
program directors determine which programs will be implemented. In 1996,
CRBfunded programs were implemented
in 400 schools and 700 preschools. However,
implementation of these programs has decreased in recent years.
(iii) Encouraging youth participation in the community and
school, and developing youth leadership
- Informal
programs in the education system also encourage youth to get involved in school
and community life. For example, the “personal
commitment” program,
implemented in schools throughout the country, requires students to volunteer
for several hours each week
at a community service. After undergoing training
that familiarizes them with the needs of the population they will assist, the
youths volunteer at community centers, or work with disabled children, or
children from families in distress, or in clubs or institutions
for the elderly.
This program imparts basic coping skills and cultivates sensitivity to the
needs of others. In 1996, 65,000 students
participated in the
“personal commitment” program.
- The
development of leadership among youth has garnered special attention. The Youth
and Society Administration implements three leadership
development programs:
Student and Youth Councils, the Youth SHELACH Leadership Program, and the Youth
Leadership Program, which
are implemented in cooperation with the Association of
Community Centers and the local authorities. Aspects of these programs take
place outside of school, and require participants to invest time and energy in
them. Student and youth councils and the youth leadership
program allow youth
who are not in the formal education system to participate. All three programs
enable youth to take leadership
roles, learn from experience, and experience the
democratic process. Participants learn how to formulate a plan of action, make
decisions, resolve conflict, be assertive, represent and report to others, and
the like. They are trained in preparation for the
roles they fill in these
programs.
- Student
and Youth Councils are a democratically elected body of students and youth that
provide a channel for dialog and cooperation
between teachers and students, and
between the school and the community; they represent students of all ages before
the school and
education authorities. The councils act on four
levels:
(a) School councils are elected in every school that
participates in the student councils program. According to the staff of the
program and council representatives, the goal of school councils is to represent
students to the school administration and take responsibility
for their welfare.
Advisors see the councils as a sort of “union” for
students;
(b) School councils choose from among their members a
representative to the local authority council. These councils also comprise
members who were not elected by students, but who represent groups of youth who
are active in other organizations, such as community
centers and youth
movements. In this way, the program enables youth who are not in a regular
education framework, or who do not
attend any framework at all, as well as youth
who are interested in leadership roles but who were not elected by the students
in
their school, to take part in the program and experience a leadership role.
In 1996, student and youth councils were active in 95
local authorities. The
local authority councils represent youth before the community and the local
authority. They initiate and
organize activities for children and youth in the
community, work for the welfare of children, and help the community. Some local
authority council representatives see their role as being a broad one that
involves helping all residents of the community;
(c) Representatives
from the local authority councils are elected to the regional council. At
present, there are regional councils
in all regions of the Ministry of Education
in Israel. In 1998, 408 young people served on regional councils, representing
their
peers before the Ministry of Education and other government and public
organizations. Regional councils follow regulations formulated
by the council
members together with their advisors and other staff in the education system.
The regional councils comprise committees
that are responsible for writing
regulations and monitoring their implementation, disseminating information about
the councils and
their activities, initiating social activities for students,
and fielding referrals and complaints from students concerning infringements
of
their rights by the education system or others;
(d) Representatives from
each regional council are elected to the national student council, which is the
highest representative body
of students. Representatives of the national
council participate in meetings of the Pedagogic Center of the Ministry of
Education
and the education committee of the Knesset. They initiate activities
at the national level to promote the interests of students.
- Elected
representatives of student councils are trained in leadership skills during a
fiveday summer course, which teaches them how
to present a position, lead a
discussion, plan and organize programs, market an idea, and cope with conflict.
In addition, each
student or youth council has an advisor appointed by the Youth
and Society Administration, whose job is to guide and facilitate their
work.
- The
Youth SHELACH Leadership Program trains youth who have completed grades nine and
ten to lead field trips alongside SHELACH teachers
at their school, help
organize SHELACH activities at school and in the community, teach lessons on the
land of Israel and lead nature
observations, implement leadership programs in
the community, and fill various roles in school and community activities, based
on
their talents and interests. Youth SHELACH leaders work according to the
structured annual plan developed by SHELACH teachers.
- Candidates
for this role are selected by the school administration and the SHELACH teacher
in consultation with the homeroom teacher.
The final selection of candidates
for the training course is made by a regional selection committee. Training for
youth SHELACH
leaders prepares them to guide and manage field trips and SHELACH
activities in and outside of school, under the guidance of a SHELACH
teacher.
- SHELACH
training has several stages: a preparatory course, prior to the basic course; a
basic training course at a summer camp; continued
training in the regions during
the school year; a course in field navigation and camping (one year after the
basic summer course);
a course in survival training; and conferences and
practice workshops. In 1997, 903 young people participated in the basic summer
training course.
- For
the Youth Leadership Program, students are recruited from the ninth grade.
Unlike student and youth councils and SHELACH activities,
all youth leadership
activities take place outside of the school system and are sponsored by local
authorities and community centers.
The main role of the youth leader is to lead
younger children (from grades three and four through six) who participate in
activities
organized by community centers, clubs, or other local organizations.
The youth leaders also contribute to the community by volunteering,
and planning
and implementing community or neighborhood programs (e.g., painting fences,
helping children, organizing social activities
for the public).
- Candidates
are selected for this program in two stages: First, they are personally
interviewed by the youth coordinator to clarify
their motives for joining the
program, and their personal ability. Then the youth coordinator and the
regional advisor judge the
candidate on his personal and group behavior during a
training session.
- The
training of youth leaders also has two parts: The first is a local course (6090
hours) held weekly or biweekly during the school
year; and the second is a
regional, weeklong seminar held at a summer camp. In 1997, 1,401 youth
leaders attended the regional summer
course. The youth coordinator, the
department of youth, the community center, or the youth department of the local
authority oversee
the activities of youth leaders.
- In
1998, a comprehensive study was conducted of these three leadership programs,
which focused on their activities and youth participation
(KahanStrawczynski et
al., 2000). The study examined the characteristics of program participants,
their attitudes and values, their
patterns of activity, and their view of the
programs’ contribution to them and to their community and school. Between
60%
and 90% of the participants reported that their participation in one of
these programs improved their selfconfidence to a great or
very great extent,
taught them new skills (such as guidance and administration), and increased
their knowledge about and concern
for the community and the country.
Discussions with youth leaders revealed that that program induced some of them
to adopt new norms
of recreational activity, which have a preventive
(“gives me a framework”) or even a therapeutic (“keeps me off
the streets”) nature. In addition, it was widely reported that the
activities of these programs contribute to the systems
in which they operate.
- All
three of these programs are also implemented in the Arab sector, to a limited
extent.
(iv) Community schools
- Community
schools promote the approach that the meaning of education extends beyond the
curriculum, to social and cultural values
and involvement in the community.
Community schools create a link between the goals of the formal education
system, which are primarily
to impart knowledge, and the goals of informal
education systems. They do so by fostering openness and mutual influence among
the
school, community and parents. In other words, community schools are open
to the influence of parents and the community, and attempt
to generate openness
in the community to the influence of the school. The physical and educational
environment of the school is
available to the community, and parents, other
residents, and community organizations contribute their expertise and experience
to
the school. In this way, students are educated to become active citizens
involved in their neighborhood.
- Interaction
between these schools and the community is reflected in the
following:
(a) Culturaleducational activities: recreational
activities, enrichment courses such as “the science of family”,
“industry
and the community”, “open minds”, and
“dilemmas during adolescence”;
(b) Onetime community activities:
a community sports day, a health day, activities to prevent traffic
accidents;
(c) Activities during the school day: lectures of parents on
educational topics, development of curricula by parents and members
of the
community;
(d) Activities in which the community is perceived as an
experiential and learning site: students helping people and institutions
(Magen
David Adom, old age homes, hospitals, absorbing immigrants); expansion on
subjects of study through assistance to people and
institutions
(e.g., learning about the customs and ceremonies of local ethnic groups,
the history of the community, etc.).
- In
Israel, there are both elementary and secondary community schools. Community
elementary schools are operated through the Association
for the Advancement of
Community Schools, in cooperation with the Department of Welfare Services of the
Ministry of Education, the
Association of Community Centers, and JDCIsrael. The
Association for the Advancement of Community Schools began implementing this
program in 1978 in five elementary community schools. At present, there are 250
such schools (70 of them in the Arab sector).
- The
programs implemented in elementary community schools vary from one school to
another and may include joint activities for parents
and children, activities to
develop community student and youth councils, recreational activities, and
programs in good citizenship
and values education. These programs may be part
of the curriculum, or extracurricular. The outlook of the community school is
also reflected in its administration: Each school has a public committee
comprising parents, and representatives of community residents
and
organizations, the local authority, and the school. This committee identifies
the needs of the school and the community, translates
ideas into operative
goals, and helps school staff construct a budget that is in keeping with
these.
- Community
secondary schools are operated by the Youth and Society Administration of the
Ministry of Education. These schools began
to be established in the 1980s. As
their student population is more mature, secondary community schools emphasize
cooperation between
teachers and students, in addition to cooperation and
mutuality between the school and the community. Community secondary schools
also define the community in which they are active. Unlike community elementary
schools, most of which are in the neighborhood where
students and parents live,
community secondary schools cover a wide geographic area, sometimes even serving
an entire or several
regions. Community secondary schools also define their
activities in accordance with the needs of teachers, students, parents and
others in the community; their activities are therefore varied, involving
community leaders and laymen in the school, as well as
involving students and
teachers in community projects. Community secondary schools are also
administered by a public council, which
comprises student representatives
(usually the school’s student council, or the youth council of the local
authority). The
Youth and Society Administration offers inservice training to
the students, teachers and other school staff, parents and community
leaders who
are involved in making the community school work. In 1996, 82 schools
functioned as community secondary schools.
(b) Informal education outside of schools
- Informal
education for children and youth outside of schools takes place in many
settings, including community centers, youth clubs
and youth
movements.
(i) Community centers
- Israel
has a network of more than 170 community centers, located in cities and towns
throughout the country but concentrated in areas
with residents who have low
income. Most of the community centers are operated by the Association of
Community Centers, and offer
residents of all ages, particularly children and
youth, a variety of recreational activities.
- Community
centers aim to improve the quality of community life. They are involved
primarily in the social absorption of immigrants,
community communication (local
radio, community television, local newspapers, and computerized communication),
learning centers,
art and culture, health and sports, science and technology,
active creativity for the disabled, and international cooperation with
like
organizations. They also maintain ties with Jewish youth movements in the
Diaspora, sometimes hosting joint summer camps, student
exchanges, and the like.
A sizable portion of the budget of the Association of Community Centers is
provided by the Ministry of Education.
- Community
centers offer youth a variety of cultural activities that enable them to
experience, enjoy, initiate and learn. The culturaleducational
activities of
the centers emphasize positive social messages, such as personal and social
responsibility, love of Israel, community
involvement, individual growth, and
the like. Most of these activities take place among peer groups, local youth
movements, and
the youth leadership program. Community centers also offer
culture clubs for youth, community television, computer, dance and drama
classes, sports, and occasional activities such as field trips, ceremonies, and
community celebrations.
- Community
centers also operate a program that prepares immigrant youth and their families
for the young people’s military service,
and clubs for immigrant youth,
which offer activities for youth from specific areas (Ethiopia, the former
Soviet Union, the Caucasus,
Bukhara).
- Data
from a 1991 Central Bureau of Statistics survey of students in grades nine
through 12 indicate that 21% of Jewish students and
25% of Arab students
participate in some activity at a community center. It must be noted that the
lower school attendance rates
of Arab youth do not have any bearing on the
relative participation of Arab and Jewish youth in community center
activities.
- Community
schools (see above) function as community centers after school hours. Many of
these schools offer students an opportunity
to participate in activities that
are not part of the curriculum. Nearly all of the activities offered by
community centers, community
schools and schools are offered for a fee, although
discounts are available for special groups (e.g., large families,
singleparent
families).
(ii) Youth movements
- Traditionally,
youth movements were an important experience for many young Israelis. The roots
of Israel’s youth movements
lie in Europe, prior to the establishment of
the State; many young immigrants found a path to Israel through socialist,
Zionist,
or religious youth movements. Beginning in the 1920s, youth movements,
under the auspices of political parties, were central to
the ideological and
values education of young people everywhere. They were the harbingers of a
unique youth culture, autonomous
in part, which functioned as a society of
equals and which served as an agent of political socialization and a channel of
political
mobility.
- At
present there are 12 youth movements in Israel, representing different sectors.
Some of them are tied to political parties, while
others are not. All of them
promote individual responsibility, involvement in society, and commitment to
national values, while
stressing their ideological positions. The movements are
active in political and civic education, building a tie between the youth
and
their country, and cultivating a sense of belonging to and love for the
homeland.
- Youth
movements also offer their members a variety of informal educational and
recreational activities, including field trips and
hikes, summer camps, sports
and culturalvalues activities. The youth movements encourage their members to
volunteer to help absorb
immigrants, work in a disadvantaged neighborhood or
development town, or otherwise contribute to their community.
- The
youth movements provide an opportunity for leadership development, enabling
teenagers to serve as counselors and group leaders
for younger children, or to
progress in the hierarchy from junior to senior counselor, to advisor. Members
perform various organizational
tasks and initiate movement activities (such as
being responsible for a cultural activity, for equipment, for a field trip,
etc.).
Adult coordinators and counselors advise and assist the young
participants. Some of these adults may be performing their military
or national
service, while others may be older, although usually in their 20s or 30s. Youth
movement administrations usually comprise
representatives of participants, who
are party to decisionmaking.
- The
movements also support youth leadership programs in development towns, and work
with youth at risk who have not completed high
school by the time of their army
enlistment. Some “graduates” of the youth movements do their
military service in the
framework of NAHAL (as partners in the establishment of
new settlements in Israel); others are activists in the fields of guidance,
welfare and immigrant absorption.
- In
recent years, there has been a decline in the popularity of the youth movements,
and in the percentage of young men and women who
participate in their
activities. Nevertheless, youth movements continue to be influential among many
youth, and are still the largest
framework for informal education. A 1997
estimate of their relative size made by the Ministry of Education indicated that
257,408
(or 26.9% of) Jewish children ages nine18 participated in youth movement
activities, and 23,815 Jewish youth participated as counselors.
(c) Informal education in the Arab sector
- The
Ministry of Education, through the Youth and Society Administration in the Arab
sector, develops and implements informal education
programs for Arab youth.
Most of the programs described above chapter are also implemented in the Arab
sector, although the majority
of them are not as prevalent as they are in the
Jewish sector. These programs are adapted or redeveloped for the Arab
sector.
- One
program unique to the Arab sector is school scouts. The scout movement operates
in cooperation with the Youth and Society Administration
in some Arab schools,
and its activities are part of the curriculum in those schools.
- The
CRB Foundation promotes education in the Arab sector, as well. Its programs
generate dialog and cooperation among schools, parents
and local authorities in
order to maximize the children’s potential, teach them better skills and
study habits, and empower
local agencies. The CRB Foundation has been active in
Arab schools since 1993; in 1996, it implemented programs in 30 schools in
14
villages and two cities. During that year, 12,000 of the 165,000 Arab school
children in the country participated in these programs.
However, as noted, the
Foundation has curtailed its activities in recent years.
- At
times, it has been difficult to implement programs in Arab schools and local
authorities because of the requirement that parents
and local authorities help
finance them, and because school and local staff are not always forthcoming
about generating dialog with
parents. Nevertheless, some schools have succeeded
in enlisting the cooperation of parents and involving them in school life.
These
schools have benefited from a variety of enrichment programs, some of
which have been integrated into the curriculum. A few schools
have been able to
offer inservice training for teachers and principals, including guidance days on
changing teaching methods.
- The
“creativity program”, unique to the Arab sector, aims to improve the
climate in Arab schools, which, due to teacher
burnout and conservative teaching
methods, can be an unattractive place for students. Developed by the Followup
Committee on Arab
Education and Insann and first implemented in 1992, the
program develops students’ creativity. Initially, creative writing
was
chosen as the focus of the program, and writing groups were led in participating
schools by renowned Arab authors and poets.
The success of the program led to
its expansion to additional schools and additional areas of
creativity.
(i) Extracurricular activities
- Some
claim that a lack of informal education activities, including sports, is a major
problem in the Arab sector. Research has found
a lack of sports and games
facilities for elementary school children, for whom the streets are a favored
playing field. Until recently,
financing for extracurricular activities was
insufficient, and unlike many Jewish parents, most Arab parents are still unable
to
pay the fees required of them. Nevertheless, interviews conducted with field
staff and researchers working in the Arab sector reveal
that, recently, there
have been significant changes. Informal education within schools has
increased, and resources have been allocated for extracurricular
activities.
Nevertheless, a seminar conducted in late 1996 to define the main issues
confronting Arab children and youth raised
the need to increase informal
activities and recreational frameworks, primarily given increasing concern about
undesirable social
phenomena, such as violence, crime, and drug abuse.
- The
Association of Community Centers is very active in implementing afterschool
recreational programs for Arab youth. In recent years,
a network of community
centers has been established in Arab towns and villages; many attempts have been
made to plan activities appropriate
to the culture and needs of Arab children
and youth. Professionals at the community centers and their partners have
discovered an
urgent need to increase both physical infrastructure and manpower
so as to expand recreational and cultural activities for Arab youth.
This
corroborates the finding that Arab youth tend to explain their lack of
involvement in informal activities as being due to a
lack of services, and not a
lack of interest.
11. Leisure, recreation and cultural activities
- In
this section we will discuss the funds allocated for cultural, recreational, and
artistic activities, cultural programs for children
in and outside of education
frameworks, and efforts to preserve the traditions and cultures of unique
groups. We will then present
data on the participation of children in
recreational and cultural activities.
(a) The budget for culture, entertainment and sport
- The
State of Israel invests a significant percentage of its resources in promoting
participation in cultural and recreational activities.
Directly and indirectly,
the government supports a variety of public and private cultural activities.
The Ministry of Education
and the Ministry of Science, Culture and Sport
financially aid 300 artistic and cultural institutions, projects, and
initiatives
in culture and the arts, as well as initiating activities around the
country and helping ethnic groups preserve their culture. The
Ministry of
Foreign Affairs and the Ministry of Science, Culture and Sport also promote
cultural relations and exchanges between
Israel and other
countries.
- In
1997, the national expenditure on culture, entertainment and sport was 6% of the
Gross Local Product. Public expenditure is 1.5%
of the Gross Local Product. In
1999, about 4.5% of the Ministry of Education’s budget was devoted to
culture, sports, and
educational television. In 2000, care for most of these
matters was transferred to the Ministry of Science, Culture and Sport.
We have
no information that would make it possible to estimate what part of this
expenditure is devoted to recreational and cultural
activities for
children.
- The
allocation of resources for cultural activities is determined by the Ministry of
Education, the Ministry of Science, Culture and
Sport, or the local authorities.
Public and private foundations, private individuals and organizations, and
commercial businesses
also support cultural endeavors (e.g., the Foundation
to Promote Quality Israeli Cinema, the Documentary Film
Foundation).
- The
Department of Culture in the Ministry of Science, Culture and Sport promotes
culture and art, religious Jewish (Torah) and orthodox Jewish culture.
It formulates long and shortterm policy. Three public councils work alongside
the Department of
Culture: the Public Council on the Arts, which makes
decisions, sets processes, and determines budgets for various arts; the Council
for Public Libraries, which sets criteria for the proper management of
libraries; and the Museums Council, which sets criteria for
distributing budgets
to museums. In addition, the Public Council for the Promotion of Art and
Culture in Neighborhoods and Development
Towns sponsors activities for weaker
populations.
(b) Cultural institutions that hold activities for
children
- There
are a variety of cultural institutions in Israel, most of which have activities
for children.
(i) Museums
- There
are 180 museums in Israel in the fields of art, nature, science, archaeology,
history, and technology. Some of these museums
hold special activities for
children and youth during the afternoon, as well as special events and camps
during the summer and vacations.
Also, special programs have been developed to
enable school children to attend enrichment activities at
museums.
(ii) Literature, libraries and print media for
children
- Israel
has an extensive range of literature for children and youth. Once a year, the
“Hebrew Book Week” fair is held,
during which a variety of
children’s and youth books are sold at reduced prices. In the Arab
sector, private agencies hold
an annual book fair in major population
centers.
- In
the Jewish sector there are a variety of newspapers and journals for children
and youth. These include journals geared for young
children ages five to seven
(e.g., “First Reader”, “Maariv for
Children”), and for teenagers (e.g., “All of Us”,
“Young Maariv”). In some cases, children and youth
themselves write and prepare articles for publication.
- The
Public Libraries Law 1975 requires the State to establish public libraries, and
sets criteria for recognizing a library as a public
library. There are 950
public libraries in Israel, as well as school and other libraries. Practically
every town in Israel has
at least one library, with the exception of a few small
settlements. The libraries house books in the following languages: Hebrew,
Arabic, English, Russian, French, Romanian, Hungarian, Polish and Yiddish.
There are also mobile libraries which bring books to
small and farflung
settlements.
- Public
libraries have a children’s wing, with books for children and youth. In
addition to loaning books, public libraries
offer young readers a variety of
journals for children and youth, and enrichment activities such as story hours,
guest lectures by
authors, and the like.
(iii) Theater, music and dance
- Israel
offers a great deal of theater, music and dance for children, and in which
children participate. A number of publiclyfunded
theaters in Israel present
plays for children. In addition, private theaters and theater groups produce
musicals, plays, magic shows,
dance productions, circuses and the like for
children.
- Many
local authorities sponsor and fund a children’s dance troupe; some also
sponsor and fund a youth orchestra or band.
- “Art
for the People” is a unique Israeli organization that brings artistic and
cultural activities to residents of peripheral
areas and development towns. The
organization also promotes art education and appreciation. For example, it
“adopts”
some 12,000 artistic productions a year, and makes sure
they travel around the country. It also provides a “cultural
basket”
to schools (see below).
(iv) Enrichment activities in the sciences and
technologies
- The
Ministry of Science, Culture and Sport supports a variety of programs that
promote technology among the public, while giving preference
to educating
children and youth who live far from the main urban centers. This Ministry
supports extracurricular activities, which
cannot be held in schools due to
budgetary limitations; programs for populations with limited opportunities for
enrichment; programs
for disabled and handicapped populations; and programs for
the Arab and Druze sectors. For example, in 1997 the Ministry funded
science
workshops, summer seminars and science trips for children and youth, and a new
science journal in Arabic.
- The
computerization of Israel’s education system received a significant push
following the 1992 publication of a report of the
senior committee on science
and technological education. Learning with computers is perceived as being
advantageous for the entire
student population, and particularly beneficial for
weaker students. Educational programming has been developed to aid the study
of
certain subjects and train teachers in using computers.
- Since
1994, the “Today 98” Program has been implemented to computerize all
schools and integrate computers into teaching.
Recently, the Ministry of
Education initiated development of an internet and intranet network, to which
1,400 of Israel’s
3,800 schools have already been connected. With the
help of the National Lottery, the Ministry is striving to connect all schools
to
the computer network. In addition, computers are being used to set up specific
sites, establish virtual communities, introduce
distance learning and guidance,
and provide educational support for children who are homebound or in the
hospital, in cooperation
with schools around Israel and abroad.
- The
belief that scholastic achievement is not only a consequence of what happens in
school has led to the establishment of innovative
community projects. “A
computer for every child” was established with the understanding that, in
today’s world,
information technology skills are essential to the
advancement of every child, yet economic hardship makes it difficult
for many families to purchase a computer, and hence widens the gap between
segments of society and increases inequality. As part
of this program, children
from poor families or from towns with limited resources are given a computer,
computer programs, guidance
using computers, and the continuing support of a
mentor. A computer is brought to each child’s home, and parents are
given
guidance so they can help their child use it. By early 2000,
about 10,000 computers had been distributed to children in this
manner.
(c) Cultural institutions in education
frameworks
- At
all levels of the education system (preschool, elementary and secondary school),
subjects such as literature, foreign languages,
arts, photography, and theater
are taught as part of the curriculum, and as elective courses. In addition,
various initiatives promote
exposure to culture, cultural studies, and arts and
crafts. Following are several examples.
- Art
high schools, which are part of the secondary school system, emphasize the arts
alongside the regular curriculum.
- Cultural
enrichment is an important subject in every school. Schools receive a
“cultural basket” (sponsored by “Art
for the People”;
see above), which includes attendance at between five and seven productions for
each student throughout the
year. A variety of cultural activities are held in
the schools themselves, such as student choirs and bands, and dance and theater
groups. The government, with the assistance of the National Lottery, is
building arts and science centers in middle schools around
the country, with the
aim of developing an interdisciplinary curriculum in the arts and sciences.
These centers offer music, dance,
ceramics, science and similar
activities.
(d) The role of the media in promoting the participation of
children in cultural life
- Television
plays an important role in Israel’s cultural life. Radio stations and
television programs are devoted to literature,
art, Jewish culture and the
cultures of minority groups. Certain programs address art and cultural
activities, and report on festivals
and productions. Special radio programs on
culture, the arts, and educational subjects are devoted to children. Newspapers
are
a source of information on cultural topics, and contain special sections and
supplements devoted to culture and the arts. Families
that own a computer,
usually also have access to the internet.
- The
Ministry of Education is responsible for educational television. By law,
educational television must receive air time on public
and private channels.
Educational television educates, provides information, teaches about arts and
culture, the sciences, communications
and other topics, increases involvement in
education and in the arts and culture, expresses Jewish culture in Israel and
the Diaspora,
and both reflects and teaches about the cultural traditions of all
citizens of the State. Educational television broadcasts “teaching
programs” during the morning, which are sometimes viewed by school
children, and enrichment, family, current events, and more
broadly educational
programs in the evening. Israeli educational television also produces original
educational and enrichment programs
for children of all ages. Two television
channels
set aside time for children’s programs. The cable television companies
also produce a children’s channel, which broadcasts
programs for children
during most of the day and evening, and “imports” scientific,
cultural and educational programs
from other countries. The Open University
also broadcasts educational programs on radio and television. It should be
noted that
Israeli television and radio programs are broadcast in Hebrew,
Arabic, English, Russian and Amharic.
(e) Preserving cultural identity and traditions
- As
a multicultural society, Israel helps various groups preserve and promote their
culture by financially supporting ethnic artists.
A number of museums are
devoted to preserving various cultures, such as the Diaspora Museum, which
presents the tradition and history
of the Jewish people; the Babylonian
Tradition Museum, which presents the history and folklore of Jews from Iraq; the
Arab Folklore
Museum; an institution for Arab art; the Joe Allon Center for
Bedouin Culture; and a Center for Sephardi Jewish Culture, which promulgates
Sephardi heritage. Students visit these museums and participate in workshops
and special activities that increase their awareness
of other cultures and
educate them to respect other cultures.
- It
is the policy of the Ministry of Education to support cultural heterogeneity; it
therefore funds professional and amateur dance
troupes, singers and musicians
who preserve the ethnic and cultural traditions of Israel’s various
immigrant communities.
Within the Jewish sector, a variety of cultural
activities for children from different backgrounds are supported by community
centers,
which also host amateur folk dancers and singers who preserve various
traditions.
- The
State also helps preserve the heritage of its Arab, Druze and Circassian
citizens, by supporting traditional dance troupes, ethnic
music groups, museums
and theaters. A number of museums preserve Arab and Islamic culture, most
notably the Islamic Art Institute
and the Arab Folklore Museum. In the Druze
community, the State supports a number of amateur and professional theaters,
music centers,
and dance troupes. Infrastructure is being established for the
construction of museums about the Druze community; at present, there
is a
library in every Druze village in Israel.
(f) Patterns of recreational and cultural activity among
children and youth
- In
recent years, a number of studies have been conducted of the participation of
youth in cultural and recreational activities. This
section presents their
findings.
(i) Participation in cultural activities and entertainment
- In
1997, the Public Council on Art and Culture conducted a survey to determine the
consumption of culture of Jewish youth ages 1317
who attend school. Table 59
presents the patterns of culture consumption found by the survey. The Table
indicates that cinema is
the cultural activity most popular among youth. About
72% of them reported visiting the cinema at least once during the past month,
and only 5% reported that they had never been to the cinema.
Table 59
Frequency of attendance at cultural performances
and exhibitions, 1997 (in %)
|
Cinema
|
Theater
|
Other
|
Music
|
Dance
|
Pop Music
|
Museum
|
During the past month
|
72
|
26
|
12
|
5
|
7
|
12
|
13
|
Within the past 3 months
|
10
|
19
|
8
|
3
|
4
|
6
|
7
|
Within the past 6 months
|
4
|
9
|
7
|
2
|
4
|
8
|
6
|
More than 6 months ago
|
9
|
24
|
18
|
15
|
15
|
33
|
27
|
Never
|
5
|
22
|
55
|
75
|
70
|
41
|
47
|
Source: BenArie and Zionit, 1999.
- The
percentage of youth who had participated in other cultural activities was much
lower: About onequarter of the youth had been
to the theater at least once
during the past month, 12% had enjoyed another type of entertainment, and a
similar percentage had been
to a museum. Only a minority reported having
attended a music or dance performance at least once during the past month, and
most
reported that they had never been to such performances.
(ii) Exposure to the media, books and computers
- An
“exposure” survey conducted by the Israel Association of
Advertisement Agencies is conducted every year to determine
the media to which
young people are exposed, for the purpose of advertisement and marketing. The
survey is conducted only among
Jewish youth ages 1318. It indicates that 84% of
these youth read a newspaper on at least one of the five days that precede the
survey; about threequarters of them read a weekly magazine during the month that
precedes the survey; and only onequarter of them
read a monthly magazine during
the four months that precede the survey. Fewer than half (44%) of the youth
reported listening to
the radio on the day preceding the survey, and 15%
reported that they never listen to the radio.
Table 60
Exposure to the media among Jewish youth ( in
%)
Type
of media and frequency of exposure
|
Percentage
|
Read a daily newspaper during the past five days
|
84
|
Never read a daily newspaper
|
15
|
Read at least one weekly magazine during the past month
|
75
|
Never read weekly magazines
|
18
|
Read at least one monthly magazine during the past four months
|
30
|
Never read monthly magazines
|
53
|
Listened to the radio yesterday
|
44
|
Never listens to the radio
|
15
|
Source: BenArie and Zionit, 1999.
- In
1991, the Central Bureau of Statistics conducted a survey for the Ministry of
Education, which examined the patterns of recreational
activity of Jewish and
Arab students. No such survey has been conducted since. The findings of
that survey indicated that 58% of
the Jewish students had read one book during
the month that preceded the survey, compared to 74% of the Arab students. This
gap
may be explained in several ways: First, the survey was conducted among
students in grades nine though 12 in the two sectors. Since
school attendance
rates in the Arab sector are lower than those in the Jewish sector, it is
possible that the findings do not reflect
reading patterns among all Arab youth,
and that Arab youth who attend school are more likely to read than are those who
do not attend
school. Second, it is possible that Arab youth read books because
a wider variety of recreational activities is not available to
them. Support
for this may be sought in the finding that only onethird of the Arab students
viewed a movie on a VCR during the day
preceding the survey, compared to 46% of
the Jewish students. In addition, onethird of the Arab students, compared to
half of the
Jewish students, used a personal computer during the month preceding
the survey (see Table 60).
Table 61
Types of recreational activity of 9th12th grade
students in 1997, by sector (in %)
|
Total
|
Jews
|
Arabs
|
Viewed a movie on a VCR*
|
44.2
|
46.4
|
33.1
|
Read a book**
|
60.8
|
58.1
|
74.1
|
Used a personal computer
|
46.4
|
48.7
|
43.8
|
Source: BenArie and Zionit, 1994.
* On the weekday
preceding the survey.
** During the month preceding the survey.
(iii) Recreation outside the home
- It
is possible to divide the recreational activities of youth outside the home into
two main categories: unorganized activity, such
as going to a coffee shop,
restaurant, pub or discotheque; and organized activity, such as participating in
extracurricular classes
(see the section on informal education,
above).
- Table
61 presents information on the participation of Jewish and Arab students in
these two types of activity. The Table is based
on data from the survey
conducted by the Central Bureau of Statistics in 1991 (as noted, no more
uptodate information is available).
The Table indicates that larger percentages
of youth in both sectors participate in unorganized than in organized
activities. The
most prevalent unorganized activity is going to a coffee shop
or restaurant: More than threequarters of the respondents engaged
in these
activities at least once during the month prior to the survey. Close to 40% of
the youth went to pubs, discotheques, or
game arcades.
Table 62
Youth participation in recreational activities
outside the home
during the past month, by sector, 1990/91 (in %)
|
Total
|
Jews
|
Arabs
|
Unorganized activity
|
|
|
|
Coffee shop or restaurant
|
78.7
|
82.4
|
60.3
|
Pub
|
43.7
|
48.7
|
19.0
|
Discotheque
|
38.8
|
42.9
|
15.4
|
Game arcade
|
41.1
|
42.5
|
34.0
|
Organized extracurricular classes
|
|
|
|
Drama, dance or music
|
20.0
|
21.3
|
14.1
|
Painting, sculpture or photography
|
7.4
|
6.3
|
13.1
|
Arts and crafts
|
7.8
|
6.3
|
15.4
|
Science, technology and computers
|
10.3
|
9.0
|
16.6
|
Sports
|
38.0
|
37.5
|
40.7
|
Nature and land of Israel
|
9.6
|
6.9
|
22.8
|
Other academic subjects
|
6.3
|
5.6
|
9.6
|
Foreign languages
|
4.9
|
4.2
|
8.4
|
Source: BenArie and Zionit, 1994.
- The
comparison between the Jewish and Arab students indicates that the Arab students
spend less time in all of the unorganized activities
than do the Jewish
students, although the most popular recreational activity among them was going
to a coffee shop or restaurant
(60.3%). However, much smaller percentages of
them went to pubs and discotheques; this may be explained by the sanction
against
the consumption of alcohol imposed by the Moslem religion. About
onethird of the Arab students spend time in game arcades.
- While
the Arab youth participate less in all of the unorganized activities, they
participate more, and in greater proportions, in
many types of extracurricular
class and activity with the exception of drama, dance and music. Similar
percentages (about 40%)
of Arab and Jewish youth participate in sports; these
classes have the highest participation rates.
- The
greater participation in extracurricular classes of the Arab students would seem
to contradict the reports of fewer facilities
and appropriate infrastructure for
recreational activity in Arab towns and villages (see the section on informal
education). However,
it is important to remember that the information was
gathered among students only; it is possible that, as a result of the low
attendance
rates of Arab students, the information does not reflect the behavior
of all Arab youth, as it is reasonable to assume that youth
who attend school
are more apt to participate in such classes, and have more opportunities to
do so than youth who do not attend
school.
X. SPECIAL PROTECTION MEASURES
- This
chapter addresses the protection of children involved with the criminal justice
system (as suspects, defendants, or convicted
wards or prisoners); children who
have been subjected to economic or sexual exploitation; children exposed to
injury from armed conflict;
and children seeking asylum (see also Chapter VII).
This chapter also presents a summary discussion of issues concerning minority
children, as raised in previous chapters.
A. Articles 37, 39 and 40 of the Convention Children involved
in the juvenile justice system
1. Age of criminal responsibility
- As
stated in Chapter IV, children under the age of 12 are not criminally liable. A
child under age 12 may not be arrested, interrogated
as a suspect or
brought to trial. Generally, such children are put in the care of the child
protection services, and their acts
are likely to constitute grounds for
determining that the minor needs protection under the Youth (Care and
Supervision) Law 1960.
Section 2(3) of the aforesaid law stipulates that
“a minor is in need of protection if ... he has performed an act
that is
a criminal offense, but has not been brought to trial” (see also
Chapter VII).
- Section
3(b) of the Police Directives 14.01.05, Police Work with Minors (section 3(b);
hereinafter Police Directives Minors), addresses
minors who have not yet
reached the age of criminal liability, and states the
following:
“1. An unpunishable minor who is suspected of committing an offense
must be treated as a witness: He is not to be arrested
or charged, nor
fingerprinted, nor is a form bearing information about his identity to be
completed.
“2. An unpunishable minor may be detained for the purpose of clarifying
his identity or bringing him to the attention of a child
protection officer, who
will be summoned to the police station.”
2. Principles for dealing with children in the criminal
justice system
- In
the State of Israel, criminally liable minors (i.e. youths between the ages of
12 and 18) are treated differently than are adults.
The following are the
principal laws prescribing how they are to be treated: The Penal Law 1977; the
Youth (Trial, Punishment and
Modes of Treatment) Law 1971 and regulations
enacted thereunder; and the Probation Ordinance [New Version] 1969 and
regulations enacted
thereunder. The Youth (Trial, Punishment and Modes of
Treatment) Law pertains to Juvenile Court, arrest and pretrial proceedings,
procedure, punishment and modes of treatment (see below for further
detail).
(a) Application of the Youth (Trial, Punishment and Modes of
Treatment) Law
- Under
the Youth (Trial, Punishment and Modes of Treatment) Law, a minor is a person
who has not yet reached the age of 18 on the date
an indictment is filed against
him. The Supreme Court has held that this rule applies even if the accused has
reached the age of
18 by the time of trial.
- Section
226 of the Criminal Procedure Law [Consolidated Version] 1982 provides that the
Youth (Trial, Punishment and Modes of Treatment)
Law will not apply to offenses
punishable by a fine (such as traffic offenses), with the exception of Section 5
thereof (which deals
with punishment and modes of treatment). Section 45B of
the Youth (Trial, Punishment and Modes of Treatment) Law further limits
its
application to traffic offenses. For some traffic offenses, minors will be
tried by a traffic judge (and not a Juvenile Court
judge); only some of the
special rules that apply to minors in criminal proceedings will apply to them in
traffic cases. Nevertheless,
under section 45B(d) of the law, “A traffic
judge may, on special grounds, which will be recorded ... [and] if he deems it
necessary and in the best interest of the minor, transfer the hearing to
Juvenile Court”.
(b) The framework of action and general
principles
- The
following agencies, by law, deal with minors suspected of having contravened the
law: the Police Force; the Youth Probation Service
(a State social welfare
service acting under the auspices of the Ministry of Labor and Social Affairs);
the Public Defender’s
Office; the courts; the Youth Protection Authority
(also under the auspices of the Ministry of Labor and Social Affairs, and
responsible
for juvenile residences); and, in a few cases, the Prison Authority.
These agencies are governed by a series of laws, regulations
and directives,
which are founded on the principles of avoiding the labeling of a minor as a
result of his interaction with the criminal
justice system, and providing for
his rehabilitation. In most cases, minors are handled by people who are
specially trained for
the task. In all systems, there are rules that aim to
provide special protection for minors, including protection of their privacy
and
prevention of their stigmatization as criminals. A minor is accompanied by
therapeutic professionals from the initial stages
of criminal proceedings; the
majority of decisions regarding the fate of the minor are made in consultation
with these professionals,
and with preference given to treatment and
rehabilitation. Section 2(b) of the Police Directives Minors
states:
“Police policy regarding youth is anchored in the distinction between
young people whose delinquency is a way of life, and young
people who have
committed a random offense that is not a felony, and who should be extricated as
quickly as possible from the cycle
of criminal behavior. This policy is
reflected in the efforts made to prevent the minor from being labeled a
criminal, and to prevent
his involvement with the police from being known to the
public.”
3. Minors as suspects or defendants
(a) Basic rights
- Beyond
the rights accorded to minors, to be specified hereunder, a number of basic
rights are due all suspects and offenders in criminal
proceedings in
Israel.
(i) Indictment only for acts prohibited by law
- Section
1 of the Penal Law determines that “there is no offense, and no penalty
therefore, unless prescribed by statute or in
accordance
therewith”.
(ii) Presumption of innocence
- Under
section 34I of the Penal Law, a defendant in a criminal trial is presumed
innocent, unless his guilt is proven beyond a reasonable
doubt. The legal
process is so structured as to impose the burden of proof on the prosecution; a
defendant may, by entering a plea
of “not guilty”, force the
prosecution to bring proof of the charges against him (section 152a of the
Criminal Procedure
Law).
(iii) Defense against selfincrimination
- A
suspect in a criminal investigation and a defendant on trial have the right to
remain silent. The Criminal Procedure (Witnesses)
Ordinance 1927 determines
that “a person interrogated [at a police station] ... is required to
respond correctly to all questions
posed to him during the investigation by the
police officer in question, or any other authorized officer, with the exception
of questions
the answer to which may put him in danger of incriminating
himself”. During trial, the court is obligated to notify the defendant
that he has the right not to testify or to testify, in which case he may be
crossexamined (section 161 of the Criminal Procedure
Law). The court is also
obligated to explain to the defendant that a decision not to testify is likely
to be considered in support
of any other incriminating evidence (supra, section
162). Failure to explain his rights to a suspect or defendant may, under
certain
circumstances, constitute cause to disqualify an admission which the
suspect made during investigation.
(iv) The right to an immediate trial
- Under
sections 5961 of the Criminal Procedure (Enforcement Powers Arrests)
Law 1996, a suspect must be released if an indictment
has not been filed
against him within 75 days of his arrest; if a trial has not commenced
within 30 days of filing the indictment;
and if sentencing has not been passed
within nine months. These periods may be extended by the Supreme Court in
special circumstances.
When an indictment has been filed, the court must set
the earliest date possible for commencement of the trial (Regulation 19 of
the
Criminal Procedure Regulations 1974). In the case of a minor, section 14
of the Youth (Trial, Punishment
and Modes of Treatment) Law stipulates that, “save with the consent of
the attorney general, a minor will not be brought to
trial for an offense if a
year has passed since its commission”. The Supreme Court has held that
this limitation does not
apply if the minor became an adult within the year
determined in section 14, in which case the general statute of limitations on
the specific offense committed would apply to him.
(b) Conducting the investigation
- The
police are usually the first to come into contact with a minor accused of an
offense against the law. The police have special
instructions regarding the
modes of treatment of minors accused of having committed an
offense.
- In
most cases, contact with a minor suspected of committing an offense against the
law is made by youth units, which exist in every
police station (section 2(3) of
the Police Directives Minors). The units are composed of police officers who
undergo special training
and inservice refresher courses on interrogation of
youth, and who receive information on the distinct laws and procedures for
handling
youth and on community services for minors and youth. The Youth
Department at Police Headquarters is responsible for the professional
activities
of these units.
- The
Police Force has set criteria for the appointment of youth workers; these
include having completed at least 12 years of study
and obtained a matriculation
certificate. Preference is given to college graduates who majored in the social
sciences. However,
an internal study conducted by the Police Force revealed
that, despite an increase in the number of educated investigators in recent
years, at least 40% of the youth workers still do not have a matriculation
certificate (although the majority of them have completed
12 years of study),
and only onequarter of them have higher education. In a study conducted in 1998
(Habib et al., 1998), the majority
of respondents senior staff on the Police
Force and in services that work with the Police Force reported the high quality
of the
personnel dealing with youth, particularly the dedication and sensitivity
of youth workers. However, some of the respondents expressed
dissatisfaction
with the hiring of youth workers, claiming that assignment are sometimes based
on shortages of manpower, rather than
on the candidate’s suitability for
the position. It should be noted that a significant number of new staff have
been hired
in youth units during the past two years. The units are being
reorganized, and much effort is being invested in increasing their
professional
level including hiring people to fill specific positions (e.g., prevention
officers), most of whom have academic degrees
and a great deal of
experience.
- In
many cases, initial contact with a minor suspected of having committed an
offense is made by a police officer who is not a youth
worker, but rather a
patrol officer, detective, or civil defense guard. These officers have the
authority to make an initial inquiry
into the incident and decide whether there
is a need for the case to be further handled by the criminal justice system.
(For example,
they have the authority to disperse an affray among minors and
dismiss them with a warning only.) If further investigation is required,
the
case is transferred to a youth unit. Police officials estimate that ordinary
police officers prefer to transfer the cases involving
minors to a youth unit as
soon as possible, for fear of violating the special
instructions.
(c) Special protection of minors in criminal
proceedings
- Many
of the rules governing police handling of minors are not defined by statute, but
may be found in internal police regulations
(Israel Police Force, Minors/Youth
Department Directives). As noted, police handling of minors rests mainly with
youth workers.
According to section 3(a) of the Police Directives Minors, only
a youth worker (as noted, a speciallytrained police officer) may
interrogate a
minor suspect, with the exception of a minor under the age of 14 who is
suspected of being involved in a sex offense,
who is to be interrogated by a
youth interrogator (a social worker from the Youth Probation Service). Many
sections of the Police
Directives are designed to protect a minor’s
privacy and prevent his being labeled as a criminal. For example, youth workers
must wear civilian clothing and travel in unmarked vehicles, rather than in
police vehicles (section 2(e) of the Directives). Youth
workers are prohibited
(except in urgent cases) from interrogating or arresting a minor at night or at
his place of study or work
(section 2(d) of the Directives); if this is
nevertheless imperative, the interrogation must be coordinated with the school
principal,
and measures should be taken to avert unnecessary attention (section
3(2)(b) of the Directives). Interrogation at a police station
should be
conducted in a separate room, in which no adults are being interrogated. It is
prohibited to shackle a minor, except in
exceptional cases (section 4(c) of the
Directives). A minor under the age of 14 may not be examined by polygraph, and
a minor ages
1416 may only be examined by polygraph with his consent and that of
his parents (section 3 (e) of the Directives). There are limitations
on
photographing and finger printing a minor suspected of having committed an
offense (section 3(g) of the Directives).
(d) Special protection of minors in criminal proceedings:
implementation
- A
study of police handling of minors revealed that the rights of minors in
criminal proceedings are not always strictly protected
(Habib et al., 1998).
The Police Directives allow for exceptions, in which it is possible not to
comply with the stipulation to
protect these rights: For example, a regular
police officer may interrogate a minor if a youth interrogator cannot be found
and
it is feared that any delay will impede the investigation. However, the
Directives stress the need to reduce noncompliance where
possible. As part of
the study, the heads of investigation departments in police stations around the
country were asked to estimate
the prevalence of noncompliance with the
Directives.
- The
Table reveals that some of the heads of investigation departments reported
frequently or always violating most of the Directives.
It is interesting to
note that the injunction against interrogating or arresting a minor at school or
work was violated infrequently,
if at all. This indicates that police staff are
sensitive to the minor’s privacy, and tend to protect it from friends and
teachers when making an arrest or conducting an interrogation. Conversely, the
directives most frequently violated were transporting
a minor in a (not
unmarked) police vehicle (42%); interrogation or arrest of a minor by a police
officer who is not a youth worker
(33%); and transporting an arrested minor by a
police officer who is not a youth worker (26%). At 74% of the police stations
studied,
the injunction against shackling a minor’s arms and/or legs is
violated from time to time. Although only a small percentage
of the heads of
investigation departments reported that the instruction to separate minors from
adults is always or often violated,
about
onequarter of them did confirm that it is violated from time to time. These
findings corroborate information obtained through interviews
with senior police
personnel, and are generally explained by a lack of the manpower, resources and
infrastructure (such as unmarked
cars, interrogation rooms) that would
facilitate compliance.
Table 63
Investigation department heads reporting violations
of the instructions for handling
minors at their police station, by
frequency of noncompliance (in %)
|
|
Rarely
|
Never
|
NA
|
Transportation of an arrested minor by a police officer who is not a youth
worker
|
26
|
72
|
2
|
|
Interrogation or arrest of a minor by a police officer who is not a youth
worker
|
33
|
60
|
7
|
|
Interrogation and detention of a minor in a room with or adjacent to one
with adults
|
11
|
23
|
66
|
|
Transportation of a minor in a police (not an unmarked) vehicle
|
42
|
51
|
7
|
|
Transportation of an arrested minor in a vehicle with an arrested adult
|
12
|
23
|
65
|
|
Arrest or interrogation of a minor at night
|
16
|
84
|
|
|
Interrogation of a minor at school, work or “hangout” for
youth
|
|
40
|
60
|
|
Arrest of minor at school, work or “hangout” for youth
|
|
65
|
35
|
|
Shackling the arms and/or legs of a minor
|
14
|
60
|
19
|
7
|
Source: Habib et al., 1998.
- Also
as part of this study, youth workers, heads of investigation departments, and
police station superintendents were asked their
attitude about protection of the
rights of minors in criminal proceedings. Table 64 reveals that 85% of the
superintendents and
66% of the youth workers believed that the police must make
sure that minors are aware of their rights. A larger percentage of those
youth
workers educated in a related field agreed that the police must inform youth of
their rights. It is interesting to note that,
despite their belief in the
importance of informing a minor of his rights, the majority of superintendents
(82%) and of heads of
investigation departments (72%) believed that minors are
not usually aware of their rights in criminal proceedings. Only onehalf
of the
youth workers agreed with their assessment.
Thirtynine percent of the superintendents, 37% of the heads of investigation
departments, and 31% of the youth workers agreed that
minors’
knowledge of their rights would interfere with investigation. This clearly
reveals the tension between acknowledgement
of the need to inform minors of
their rights, and concern that doing so will impede police work.
Table 64
Police officers responding “agree” or
“definitely agree” with statements concerning
the rights of a
minor in criminal proceedings, by respondents’ position
|
Position
|
|
Investigation department head
|
Youth worker
|
Police must inform minors of their rights
|
85
|
81
|
66
|
A minor’s knowledge of his rights will impede investigation
|
39
|
37
|
31
|
Source: Habib et al., 1998.
- The
senior police personnel interviewed were willing to accommodate to new
legislative initiatives concerning the rights of minors
(e.g., the
amendment to the Arrests Law; the bill on representation of minors in legal
proceedings). At least in word, the senior
officers were willing to admit that
the initiatives were part of a natural process to which the Police Force will
have to adapt.
Senior staff of social services that work with the Police Force
reported that, indeed, police officers are increasingly aware of
the rights of
minors and are increasingly apt to enforce directives, whose violation is
treated with severity (by the Police Force
and the Ministry of Justice) due to
the public’s sensitivity to this issue. For the record, many on the
Police Force appear
to accept the idea of minors’ rights and the
directives meant to protect them. However, many are concerned that respect for
these rights will take a toll on the efficacy of police work. This indicates a
need to improve the ability of the Police Force to
follow directives meant to
preserve the rights of minors, while effectively doing their
duty.
- Children’s
rights organizations, such as DCI Defense for Children International and the
National Council for the Child, are
also a source of information on violation of
Police Directives. Activists in these organizations criticize the failure of
the Police
Force to cooperate with attempts to distribute information to police
stations about the rights of minors in criminal proceedings;
only after pressure
was exerted did the police agree to publish the directives concerning the
handling of minors. Children’s
rights organizations would like to anchor
these directives in legislation, which would be binding and open to public
criticism.
The proposed amendment to the Youth (Trial, Punishment and Modes of
Treatment) Law is meant to address this issue.
- Every
year, children’s rights organizations receive complaints about infractions
of the Police Force, whether these be violation
of the instructions regarding
minors (such as shackling their hands and/or feet) or disorganization (such as
failure to inform a
minor’s parent or guardian
of his release from detention). Complaints of improper behavior toward a
citizen by a police officer are addressed by the Police
Investigation Division
of the Ministry of Justice. (The way in which the Division collects data does
not allow for separate presentation
of complaints relating to treatment of
minors.)
(e) Representation of minors in criminal
proceedings
(i) Court appointment of defense counsel
- The
Public Defenders’ (Entitlement of Additional Minors to Representation)
Regulations 1998 entitle a minor under arrest or
involved in legal
proceedings to representation by a public defender. In addition, section 18(a)
of the Youth (Trial, Punishment
and Modes of Treatment) Law empowers a Juvenile
Court to appoint counsel for the defense of a minor, if it believes this to be
in
the best interest of the minor. It has this authority throughout all stages
of the criminal process, including investigation. However,
a minor does not
have the right to the presence of legal counsel during interrogation.
(ii) Representation by a parent or guardian
- Under
section 15 of the Guardianship and Legal Capacity Law 1962, “parental
guardianship [over a child] includes ... the authority
to represent him”.
According to the Police Directives, a parent or guardian must be allowed to be
present at the interrogation
of a minor under the age of 14 (section
3(c)(c) of the Directives). This rule may be disregarded if it is suspected
that the parent’s
presence may cause the minor harm or interfere with the
investigation (section 3(c)(d) of the Directives). If a minor is over the
age
of 14, parents have no right to be present at the interrogation, unless the
police decide otherwise (section 3(c)(c) of the Directives).
However, police
staff report that if a parent asks to be present and there is no reason not to
allow it, his presence is allowed;
in fact, the parent’s presence may even
be used to clarify for the minor the severity of his offense. On the other
hand, police
staff report that a parent’s presence during questioning may
influence a minor not to admit to an offense, if he fears the
parent. Since
most minors suspected of having committed an offense are over the age of 14,
parents are not present at most interrogations.
Critics feel that the existing
instructions favor the investigation at the expense of the minor’s best
interest, and that,
as they are mere directives not anchored in law, they give
the police too much latitude.
- Even
when a parent is present during questioning, he is not always able to ensure
that the rights of the minor being investigated
are being safeguarded. Some
fear that this causes minors (who are not even considered legally competent to
conclude a contract)
to unwittingly waive their rights, and even make false
confessions. It has been claimed that minors often have difficulty
understanding
the language of a warning and the information given them about
their rights.
- In
a presentation to a committee examining this issue headed by a Supreme Court
justice, the National Council for the Child proposed
stipulating a minor’s
right to his parents’ presence, as well to the presence of an attorney,
and requiring the presence
of an attorney during the signing of a confession.
For minors not mature enough to instruct counsel, the Council proposed
appointing
a legal guardian (a parent or, where there is a conflict of
interests, another adult). (For more information on the appointment
of a legal
guardian, see Chapter IV.) In addition, a proposal has been made to establish
other conditions for the admissibility of
a minor’s confession. This and
similar matters are at issue in a proposal for extensive reform of the Youth
(Trial, Punishment
and Modes of Treatment) Law (see below).
(f) Opening a criminal file and filing an
indictment
- Youth
units are responsible for investigating offenses when the suspects are minors.
It is their responsibility to decide, in cooperation
with the Youth Probation
Service and the police prosecutor or the district attorney, the fate of the file
that is, whether to open
a criminal case or decide on noprosecution proceedings,
whether to close a file due to the suspect’s innocence or to lack of
evidence or public interest, or whether to file an indictment.
- The
police may decide, at their discretion, not to open a criminal file for a minor,
even before the investigation has been completed,
and even if it is found that
the minor committed the offense. In such a case, “noprosecution” a
proceeding that does
not impose a criminal record will be the course of action.
Section 3(b)(d) of the Police Directives Minors states, “a
decision
... to use the noprosecution proceeding will be made in light of a
minor’s prior police record and the recommendation of the
youth worker
handling the case”. The Police Directives instruct using the
“noprosecution proceeding” for a first
or petty offense of a minor
who admits his act, expresses regret for said act, and seems to be a candidate
for rehabilitation. It
should be noted that approximately onequarter of the
files opened annually are later closed due to insufficient evidence, lack of
public interest, and the like; this should not be confused with the
noprosecution proceeding, which is an alternative to opening
a criminal file and
does not establish a criminal record.
(i) Police considerations for opening a criminal
file
- In
an attempt to allow a minor’s personal circumstances to be taken into
consideration, and to facilitate rehabilitation, the
police are given a wide
berth in making decisions concerning the prosecution of minors. Critics fear
that the “noprosecution
proceeding”, though designed to prevent a
minor from being labeled a criminal and to contribute to his rehabilitation,
does
in fact infringe upon his right to prove his innocence, as minors sometimes
admit to an offense they have not committed so as to
forestall criminal
proceedings against them (even though they are made to sign a form explaining
the nature of the noprosecution
proceeding). Others claim that the discretion
granted the police in the use of the noprosecution proceeding is susceptible to
bias,
to the detriment of minorities. A 1997 study revealed that the
noprosecution proceeding was used in cases involving minors who were
repeat
offenders or who had committed a felony (Habib et al., 1998). The study also
highlighted inconsistencies in the criteria
used when considering the
noprosecution proceeding for different groups (for example, this proceeding is
invoked more often for girls
than for boys, and for Jews than for Arabs, even
when the severity of the offense and the minor’s criminal record are
similar).
In 1998, the Police Directives were clarified to emphasize that the
noprosecution proceeding should only be invoked for firsttime
offenders, unless
there are special circumstances that justify its being invoked for a repeat
offender. Preliminary data reveal
that, since this amendment to the Directives,
the use of the noprosecution proceeding has decreased, from in approximately 60%
to
in approximately 40% of the cases involving minors. In most of these cases,
the offense for which the noprosecution proceeding was
invoked was classified as
a contravention or misdemeanor, for which penalties are statutory and relatively
mild (up to three months’
imprisonment and up to three years’
imprisonment, respectively). According to the instructions of the
attorney general, the police
and the district attorney also have the
authority to invoke a noprosecution proceeding for more serious offenses,
classified as felonies.
In felony cases, the police must obtain the report
of an officer of the Youth Probation Service (for less serious offenses, no
such
report is required).
- Special
instructions set down by the attorney general apply to drug offenses: In an
investigation of a minor suspected of using or
possessing for the purpose of
selfuse (excluding injecting or snorting) a dangerous drug, the police will
weigh initiating criminal
proceedings against invoking the noprosecution
proceeding. According to these instructions, the police will refrain from
initiating
criminal proceedings against a minor suspected of such offenses, if
all of the following conditions have been met: There is no indication
of
previous drug use; the minor admits to having committed the offense, and agrees
to undergo treatment; the minor does not use drugs
on a regular basis, did not
initiate the purchase or distribution of the drugs, and did not solicit other
minors to use drugs; the
minor discloses the source of the drugs to the
interrogator. Noprosecution may also be invoked if the chief investigating
officer
is convinced that the minor is either unaware of or afraid to reveal the
source of the drugs.
- These
instructions have been distributed to schools, in an effort to encourage them to
report drug use among students and to involve
them in constructing a
rehabilitation program for minors, with the assistance of the Educational
Psychological Service.
(g) The role of the Youth Probation Service during
investigation and trial
- According
to section 12 of the Youth (Trial, Punishment and Modes of Treatment)
Law 1971, the police are under obligation to inform
the Youth Probation
Service about any minor whom they feel may be tried: “If a criminal
investigation has revealed grounds
for bringing a minor to trial, the police
will notify a probation officer, who may thereupon exercise the authority of a
child protection
officer under the Welfare (Procedure in Matters of Minors, Sick
Persons and Absent Persons) Law 1955, even in the absence of a court
order”.
- Every
minor against whom the police intend to file an indictment is referred to the
Youth Probation Service, which performs a psychosocial
assessment. The
assessment constitutes the beginning of the rehabilitativetreatment process. It
is also the basis for the report
that the Service will make to the court, which
will inform court’s decision regarding the appropriate mode of treatment
and
punishment, if it determines that the minor has indeed committed the offense
attributed to him (section 22 of the Youth (Trial, Punishment
and Modes of
Treatment) Law).
- Since
the 1990s, data on minors for whom the noprosecution proceeding has been invoked
are also transferred to the Youth Probation
Service, and the minor is made to
sign a release indicating that he knows the data have been transferred. The
Youth Probation Service
may summon the minor to determine whether intervention
(by the Youth Probation or another service) is called for. However, the minor
is under no obligation to appear.
- The
Youth Probation Service also submits a report prior to a decision to close a
file, and sometimes prior to a decision to invoke
the noprosecution proceeding.
An indictment may not be filed against a minor under the age of 13 without
having received a report
from his youth probation officer (section 12(b) of the
Youth (Trial, Punishment and Modes of Treatment) Law).
- Several
years ago the Youth Probation Service was allocated a few positions for staff
who would compile reports on minors residing
in the Palestinian Authority. They
prepare their reports based on an interview with the minor and a report on his
family received
from the Palestinian Authority.
- A
youth probation officer should maintain contact with a minor and his parents.
After an indictment has been filed, the officer should
explain the significance
of the court hearing to them (see section 13 of the Bringing Offenders to
Probation (Probation Services)
Regulations 1959).
- The
Youth Probation Service is developing alternatives to indictment, such as an
experimental program to begin treatment rather than
filing an indictment, which
has been implemented by the police in Beer Sheva. As part of this program,
“mediation” is
conducted between the offender (usually a minor who
has committed a crime against property) and the victim, whose aim is to arrive
at an agreement regarding compensation of the victim. Another program now being
formulated is that of the “family conference”,
in which the police,
the Youth Probation Service and other therapeutic agents, together with the
minor and his family, are in some
cases authorized to set a rehabilitation
program for the young offender (which sometimes includes determining
compensation for the
victim), as an alternative to filing an indictment. In
July 2000, this program was implemented experimentally in two police stations,
one in Ashdod and one in Jerusalem.
(i) Data on minor suspects
- In
1998, the police handled 27,187 cases involving minors and youth. In 12,599
(about 46%) of the cases, criminal files were opened.
The remainder (about
54%) of the cases concluded with a noprosecution proceeding. According to
reports of the Youth Probation Service,
in recent years, 2.4% of youth are
suspected of having committed an offense.
- Table
65 presents the offenses that minors were suspected of committing in
1998.
- In
1998, minors were suspects principally in property offenses (42%), offenses
against the public order (20%), and offenses against
the person (21%). Offenses
against the public order and offenses against the person were mainly violent
crimes, such as assault
of a layman or police officer, threats, grievous bodily
harm and affray. The most prevalent offenses against property were theft
of or
breaking into a vehicle, and breaking and entering into a home or business.
Nine percent of the offenses were drugrelated,
most of them surrounding
drug use, and 2.5% of the offenses were sex and morality offenses. In recent
years, concern has been expressed
over the increase in violent and drugrelated
offenses committed by young people.
Table 65
Juvenile files in 1998, by type of offense
|
All files
|
Criminal files
|
Noprosecution proceeding files
|
Total
|
27 187
|
12 599
|
14 588
|
Offenses against human life and security
|
258
|
215
|
43
|
Offenses against the person
|
5 811
|
1 415
|
4 396
|
Offenses against public order
|
5 359
|
2 269
|
3 090
|
Sex and morality offenses
|
684
|
244
|
440
|
Drugrelated offenses
|
|
|
|
Drug use
|
1 773
|
894
|
879
|
Drug trafficking
|
381
|
353
|
28
|
Possession of drugs
|
228
|
199
|
29
|
Property
|
|
|
|
Breaking and entering a home or business
|
1 849
|
1 374
|
475
|
Theft of or breaking into a vehicle
|
2 864
|
2 243
|
621
|
Other property offenses
|
6 721
|
2 628
|
4 093
|
Other offenses
|
1 259
|
765
|
494
|
Source: Israel Police Force, 1999.
- The
police and the Youth Probation Service are collecting and publishing data on the
minors in their care. Some of the data concern
all minors suspected of having
committed an offense, and some concern only those minors against whom criminal
charges have been brought
(see the Tables 66 and 67). The data reveal that the
majority of minors suspected of having committed a crime are men, and are ages
1617. Moreover, young immigrants from the former Soviet Union and Ethiopia
comprise a larger proportion of offenders than their
proportion in the
population. The number of Arab youth with criminal files also exceeds their
proportion in the population.
Table 66
Principal demographic characteristics of minors
with a criminal file, 1996
|
7 226
|
Percentage of boys
|
94
|
Percentage of youth age 1617
|
71
|
Population subgroups (in numbers)
|
|
Jewish (native born)
|
3 583
|
Immigrants from the former Soviet Union
|
884
|
Immigrants from Ethiopia
|
183
|
Arab residents of Israel
|
1 899
|
Arab residents of the West Bank and Gaza
|
677
|
Source: Habib et al., 1998 (analysis of Israel Police Force
data).
- Youth
Probation Service data from 1996 reveal that the majority of minors (residents
of Israel) with a criminal file come from large
families or broken homes; many
of them also have family problems or learning difficulties. For example, 50% of
the Jewish minors
with a criminal file came from families with at least four
children, compared to 27% of all Jewish children in Israel; 91% of the
Arab
minors with a criminal file came from large families, compared to 63% of all
Arab children in Israel. Twentyfive percent of
the Jewish and 13% of the Arab
minors with a criminal record came from families in which the parents do not
live together, compared
to only 8% of the total population of children in
Israel. Similarly, 15% of the minors with a criminal file have a sibling or
parent
who has committed a criminal offense.
Table 67
Family characteristics of minors with a criminal
file who were referred to the
Youth Probation Service in 1996, compared to
all children in Israel (in %)
|
Has a criminal file and was referred to the Youth Probation Service
|
General population of children (ages 017)
|
Family has 4 or more children (Jewish)
|
50
|
27
|
Family has 4 or more children (Arab)
|
91
|
63
|
Lives with one parent only (Jewish)
|
25
|
8 (both Jews and Arabs)
|
Lives with one parent only (Arab)
|
13
|
Source: Youth Probation Service, 1999.
- In
general, the level of education of minors with a criminal file is significantly
lower than that of their peers in the general population.
In 1996, 43% of these
minors attended a class that was two grades lower than the class in which they
ought to have been placed,
according to their age. Approximately 70% of these
minors attended some kind of school (elementary or secondary school, or a
vocational
training or special education framework). Twentythree percent of
them worked full or part time. Seven percent neither worked nor
attended
school.
4. Sentencing, punishment and modes of treatment
(a) General principles
- The
Criminal Procedure Law and the Penal Law apply to every legal hearing concerning
minors, unless there is an express provision
to the contrary in the Youth
(Trial, Punishment and Modes of Treatment) Law. As a rule, the provisions of
the Youth Law are designed
to augment and not detract from the authority granted
in other legislation. The Supreme Court has held that where the legislature
wished to bring specific and unique provisions into the Youth Law to supplant
corresponding legislative provisions, it has done so
expressly.
- A
“minor” is defined as a person who, on the day on which an
indictment is filed against him, is under 18 years of age
(see section 1 of the
Youth (Trial, Punishment and Modes of Treatment) Law). According to section 3
of the law, a minor charged
with an offense will be
tried in a Magistrates’ (Circuit) Court or a District Court, depending
on the gravity of the offense, sitting as a Juvenile
Court. The trial is to be
conducted by a juvenile judge that is, a judge assigned by the chief justice of
the Supreme Court, with
the consent of the Minister of Justice (section 2 of the
law).
- As
a rule, a minor will not be brought to trial together with an adult, save with
the consent of the attorney general (section 4(a)
of the law). However, where a
minor is brought to trial together with an adult, and the court decides to
continue hearing the matter,
the court will deal with the minor as if it were a
Juvenile Court (section 4(b) of the law). If at any stage before the conclusion
of a trial it is discovered that a minor has erroneously been brought before a
court that is not a Juvenile Court, the court must
transfer the case to a
Juvenile Court (section 5(a) of the law), unless it perceives special
circumstances that justify its not doing
so, in which case the court is allowed
to continue hearing the case, although from that point onward it will proceed as
if it were
a Juvenile Court, and will have the authority granted a Juvenile
Court (section 5(b) of the law). If the error is detected after
a judgment has
been handed down, the court will continue to handle the case as if it were a
Juvenile Court (section 5(c) of the law).
The chief justice of the Supreme
Court has the authority to order a retrial, if grave miscarriage of justice has
been caused by
bringing the minor to trial before a regular court (section 7 of
the law).
(b) Hearing procedures for Juvenile Court
- A
Juvenile Court will, to the extent possible, hold its hearings in a place where
other trials are not being held, or in a place where
other hearings are held,
but at a different time (section 8(a) of the Youth (Trial, Punishment and Modes
of Treatment) Law). To
the extent possible, minor defendants will not be
transported to and from court together with adult defendants (section 8(b) of
the
law). According to Juvenile Court judges, these procedures are not always
complied with. As a rule, hearings involving a minor
should be held in camera
(section 9 of the law). This duty does not apply automatically with regard to a
hearing concerning detention
for the purpose of investigation, although the
judge may direct that the hearing be held in camera pursuant to the provisions
of
section 68 of the Courts Law [Consolidated Version] 1984. This duty also
does not apply to hearings held in the Supreme Court when
it sits as an
appellate court on the decision of a Juvenile Court, nor to a hearing concerning
the detention of a minor conducted
in a court that is not a Juvenile Court.
Section 17 of the law allows for part of the hearing to be held in the absence
of the minor.
Some claim that this section constitutes a material infringement
of the minor’s right as a defendant; this claim has yet to
stand the test
of case law. In any event, this section is rarely invoked. This matter has
also been addressed in the proposal to
reform the Youth Law (see
below).
(c) Representation of minors in court
(i) Appointment of defense counsel by the court
- For
adults, the duty to appoint defense counsel applies only in felony cases, or if
the defendant has a handicap that prevents him
from representing himself (see
section 15 of the Criminal Procedure Law [Consolidated Version] 1982). Section
15 of the Criminal
Procedure Law also establishes the duty to appoint defense
counsel for a defendant who has not yet reached
the age of 16 and who has been brought before a court that is not a Juvenile
Court. This duty is not generally invoked, as many judges
are authorized to act
as juvenile judges. According to section 18(a) of the Youth (Trial, Punishment
and Modes of Treatment) Law,
a Juvenile Court may appoint defense counsel for a
minor if it considers that the interest of the minor so requires. In any case,
it seems that the problematic nature of the right to representation has been
resolved by the Public Defenders (Entitlement of Additional
Minors to
Representation) Regulations 1998, which stipulate that a minor against whom an
indictment has been filed, excluding an
indictment filed before a traffic judge
for an offense that is not a felony, is entitled to representation by a public
defender.
In actuality, no systematic data are available on the extent to which
minors are represented; however, professionals in the court
system estimate that
a large proportion of the minors brought to trial are still not represented by a
lawyer.
(ii) Appointment of a legal guardian
- Both
Juvenile Court and Family Court have the legal authority to appoint a legal
guardian for a minor (see Chapter IV).
(iii) Selfappointment of defense counsel by a minor
- Section
18(d) of the Youth (Trial, Punishment and Modes of Treatment) Law stipulates
that its provisions will not derogate from the
right of a minor to be
represented by an attorney, as instructed by the Chamber of Advocates Law 1961.
Under section 18(c) of the
law, if a minor has no defense counsel, the court
will help him question the witnesses.
(iv) Representation by a parent
- Under
section 19 of the Youth (Trial, Punishment and Modes of Treatment) Law, the
parent of a minor defendant is entitled to be present
in the court at the time
of the hearing, unless the court determines otherwise; the parent may file a
motion or petition on behalf
of the minor, question witnesses, and make a plea
or argument on behalf of the minor.
(d) The right to an interpreter
- Under
section 140142 of the Criminal Procedure Law, if the court finds that a
defendant does not understand Hebrew, it is required
to appoint an interpreter
for him at the expense of the State Treasury, or else the judge must act as an
interpreter. In addition,
testimony heard in a language other than Hebrew must
be translated into and recorded in Hebrew, unless the court instructs otherwise.
The proposed reform of the Youth (Trial, Punishment and Modes of Treatment) Law
would make the presence of an interpreter obligatory
during interrogation,
as well.
(e) Prohibition against the publication and transfer of
information, and the statute of limitations
- As
noted, hearings in Juvenile Court, as well as other criminal proceedings
involving a minor, are conducted in camera. Section 70
of the Courts Law
[Consolidated Version] 1984 provides that a person may not publish anything
concerning a hearing that has been
held in camera in any court, save with the
permission of that court. The section also prohibits taking photographs in a
courtroom
and publishing a photograph so taken, save with the permission of the
court.
- Section
70(c) of the law provides that a person may not publish the name, photograph, or
any other detail that may lead to the identification
of a minor defendant in a
criminal trial. This section applies to courts of all instances and is not
contingent on the proceedings
being held in camera.
- Recently,
for the first time, the Supreme Court permitted publication of the names of
adults suspected of committing offenses while
they were adults, even though
publication led to their being identified as having been convicted of murder
when they were minors.
The court held that the grave circumstances of the case
required that the principles of publicity of trial, the public welfare,
and the
right of the public to be warned about offenders convicted in aggravated
circumstances, be given priority over the desire
to protect the interests of
minors.
- Section
24 of the Youth (Care and Supervision) Law 1969 protects a minor from the
publication of any detail that would impute an offense
or moral corruption to
him. Similarly, section 13 of the Crime Register and Rehabilitation of
Offenders Law 1981 restricts the transfer
of information about an offense
committed by a minor who has not yet reached the age of 14; about a misdemeanor
committed by a minor
between the ages of 14 and 16; about any ruling or order
handed down in accordance with section 24 of the Youth (Trial, Punishment
and
Modes of Treatment) Law; and about a probation order, an order of recognizance
to abstain from an offense, or an order to perform
community service made
without a conviction. The law allows for such information to be transferred
only to the specific persons
and agencies that require it in order to discharge
their duty. The list of such persons and agencies is fairly long, and includes,
inter alia, the attorney general, the military prosecutor, a committee
investigating the criminal record of a soldier, and so forth.
Information
on noprosecution proceedings may not be stored by the police in a
computerized form, and may not be transmitted to any
external entity.
- The
Crime Register and Rehabilitation of Offenders Law sets a statute of limitations
for offenses committed by minors. As a rule,
the period of limitation at the
end of which no information about a conviction may be delivered is significantly
shorter for offenses
committed by a minor than for offenses committed by an
adult. In addition, there is a hierarchy of limitation periods for minors,
based on the severity of the penalty imposed.
(f) Rehabilitation versus punishment
- The
Youth (Trial, Punishment and Modes of Treatment) Law 1971 takes a
rehabilitativetreatment approach, and defines the punishments
and modes of
treatment that may be imposed upon a minor whom a court has determined has
committed the offense with which he was charged.
Initially, a court will not
convict a minor, but will determine whether he committed the crime with which he
was charged (sections
21 and 24 of the law). A court that determines that an
adult defendant has committed the crime imputed to him must, as a rule,
convict him. This is not so for a court that hears the case of a minor. If
a court finds that a minor has committed an offense,
it will instruct a
probation officer to submit a report and, where necessary, it may direct that
examinations and investigations
be carried out, as stipulated in section 22 of
the law. The court then uses these findings to determine the minor’s
fate.
At this stage, the court may choose one of the three alternatives set
down in section 24 of the law.
- First,
the court may decide to convict and sentence the minor. If the court decides to
act in this manner, it may impose any punishment
on the minor, subject to the
provisions of section 25 of the law (which specifies modes of
punishment).
- Second,
the court may decide to order one or more of the measures and modes of treatment
enumerated in section 26 of the law. If
the court chooses this alternative, it
will not convict the minor, but will order that these measures and modes of
treatment be used.
- Third,
the court may decide to discharge the minor without an order, as noted, but with
a warning only. In this case, the court will
neither convict the minor nor
impose on him any measure or mode of treatment.
- The
Supreme Court has noted that the last two alternatives are meant to deflect the
stigma attached to a conviction, in consideration
of the minor’s young
age, the nature of his offense, or some other reason, such as the court’s
feeling that the offense
was a onetime error, which the minor regrets, and that
the minor’s general functioning is normal.
(g) Modes of punishment
- As
noted, if a court finds a minor guilty of the offense imputed to him, it may
choose to discharge him without an order, impose a
punishment, or order
treatment. The alternatives available to a court that decides to convict a
minor include most of those available
with regard to adults: actual
imprisonment, a suspended prison sentence, placement under the surveillance of a
probation officer,
a fine, compensation and public works. In addition, there
are alternatives exclusive to minors, such as placement in a closed residence
instead of imprisonment.
(h) Modes of treatment
- Following
are the modes of treatment without a conviction that a court may order under
section 26 of the Youth (Trial, Punishment
and Modes of Treatment) Law 1971:
(a) committing the minor to the care and supervision of a fit person other than
his parent (such
as an employer, social worker or educator) for a period to be
prescribed by the court, and the restriction of his parent’s
rights as his
guardian during said period; (b) placing the minor under the supervision of a
probation officer; (c) obtaining an undertaking,
from the minor or his parent,
as to the minor’s future behavior; (d) requiring the minor to report to a
day residence for a
period prescribed by the court; (e) keeping the minor at an
open or closed residence during a period prescribed by the court; (f)
requiring
the minor or his parent to pay a fine or the costs of the proceedings;
(g) requiring the minor or his parent to pay compensation
to a person who
sustained damage as
a result of the minor’s offense; (h) any other order that the
court feels is necessary to the treatment of the minor. This
last alternative
is extremely varied and encompasses all orders
and educational measure
that the court deems necessary to the minor’s treatment, including
undergoing psychological counseling,
requesting pardon from the victim, making a
donation and the like. In one case, a court obligated a minor to write an essay
on violence
and its effects.
- The
Youth Probation Service uses a variety of treatment methods with convicted
minors including individual, group and family methods
and special programs, such
as those for treatment of sex offenders. Even modes of treatment that are not
implemented by the Youth
Probation Service will in most cases be implemented
under the supervision of a probation officer, who may petition the court to
change
the mode of treatment based on changes in the minor’s condition.
It is important to note that the minor himself does not have
the right to
request a change in his treatment method.
- Some
of these alternatives such as placement under the supervision of a probation
officer may be used both in the framework of a
conviction and punishment, and
as a mode of treatment without a conviction. As noted, a mode of treatment
imposed without a conviction
is likely to be less detrimental to the
minor’s future.
(i) Court considerations and verdicts
- When
sentencing a minor, courts stress the importance of his need for special
consideration. The younger the child, both at the time
the offense was
committed and at the time of sentencing, the more his being a minor will factor
into the considerations of the court.
- Considerations
regarding minors brought into the criminal justice system are significantly
influenced by the prospect of rehabilitation.
Research published in 1997
(Hassin, 1997) revealed that the decisions of Juvenile Court judges are
influenced primarily by a rehabilitative
approach: In most cases, the judge
notes that his decision was made “in the best interest of the minor”
or “for
his rehabilitation and to modify his behavior”. In recent
years, the question has arisen in Israel as elsewhere as to whether
this
emphasis on rehabilitation does not diminish the deterrent power of the law
enforcement system. Only a very few verdicts address
punishment as a deterrent
to or restriction on criminal behavior, or as an expression of the priority of
the public good. This can
be seen in court decisions: In 1997, 44% of the
8,882 criminal files opened against minors were closed by the police and the
public
defender’s office without ever receiving a court hearing, due
either to lack of public interest or lack of evidence. This
year the courts
heard 4,940 cases involving minors. Of them, 1,182 minors received a verdict of
a fine and compensation or guarantees
(i.e. obtaining an undertaking of future
good behavior); 617 minors were placed under the surveillance of a probation
officer; 291
minors were actually imprisoned; and 159 minors were placed in an
open or closed residence. In addition, the courts imposed suspended
prison
sentences on 538 minors. Analysis of data from 1996 by age reveals that the
courts prefer verdicts that order treatment for
younger minors, and verdicts
that impose a penalty for older minors. Incomplete data from 1997 show a
similar trend.
Table 68
1996 court verdicts in cases involving minors, by
minor’s age
|
Age
|
Up to 14
|
1516
|
17+
|
Number of minors
|
197
|
1 105
|
2 291
|
Total percentage
|
100
|
100
|
100
|
Imprisonment and suspended prison sentence
|
30.0
|
8.9
|
16.8
|
Open or closed residence
|
16.7
|
6.7
|
2.1
|
Care and supervision order by a fit person
|
30.4
|
23.8
|
13.4
|
Fine and guarantee (undertaking of good behavior)
|
31.9
|
38.4
|
43.0
|
Revocation of driver’s license and “any other
order”
|
15.2
|
19.7
|
2.2
|
Discharge without an order and acquittal
|
2.5
|
2.6
|
2.9
|
Source: Youth Probation Service, 1999.
- A
1997 study (Hassin, 1997) revealed differences in the verdicts handed down for
Jewish minors and Arab minors (who were residents
of Israel). For example,
larger percentages of Arab minors received a sentence of actual imprisonment, or
a suspended prison sentence.
In 1994, the last year in which such an analysis
was made, actual imprisonment was imposed on 20% of convicted Arab minors,
compared
with only 1.5% of the Jewish minors brought to trial. The percentage
of Arab minors who received a suspended prison sentence was
8.2%, compared
to 5.7% of the Jewish minors. Accordingly, smaller percentages of Arab
minors received treatment verdicts such as
supervision orders (18.4% of Jewish
minors versus 7.1% of Arab minors) or residence orders (3.5% of Jewish minors
versus 2.8% of
Arab minors). In 1994, 246 minors received prison
sentences. Of them, 166 (twothirds) were Arab residents of East Jerusalem,
37
(15%) were Arab residents of Israel (exclusive of East Jerusalem), and
46 (18.7%) were Jewish residents of Israel. Similarly, the
majority of
verdicts for Arab minors were “with a conviction” namely, they were
more grave, as they gave the minor a
criminal record that would dog him for
years to come. The study’s analysis of the data reveals that the
breakdown of the offenses
committed by Arab minors does not justify the variance
in court verdicts. One reason for this variance was a shortage of closed
residences for Arab youth; one such residence was established in 1999,
following a petition of the National Council for the Child
to the Supreme Court
((Petition to the) High Court of Justice 1070/96 National Council for the
Child v. Minister of Labor and Social Affairs (not yet
published)).
(j) Appeal of judgments
- Every
defendant has the right to appeal a judgment before a court of higher instance
(see sections 41 and 52 of the Courts Law [Consolidated
Version] 1984).
Both the verdict and the sentence may be appealed. The judgment of a Juvenile
Magistrates’ (Circuit) Court
may be appealed to a juvenile District Court.
Further appeal to the Supreme Court requires obtaining leave to appeal. In
either
instance (appeal by right or appeal by leave), the court must explain the
right of appeal and the time limitation set on it to the
defendant.
5. Children deprived of their liberty, including
arrest,
imprisonment and placement in a residence
(a) Considerations in court decisions to deprive a minor of
his liberty
- Juvenile
Court case law indicates that the courts regard the deprivation of a
minor’s liberty as more harmful for the minor
than it would be for an
adult. For example, the Supreme Court has ruled as follows:
“The conditions of detention and prison, even without the
characteristics of such places, are liable to cause severe emotional
shock and
trauma. More often than not, a minor is liable to encounter a world of drugs
and serious crime. The court must become
a ‘father to minors’, and
preserve them whenever possible from this experience” (Miscellaneous
Criminal Applications
1363/93 Y.Z. (Minor) v. State of Israel,
P.D. 47(2) 71).
- Another
Supreme Court judgment held that before lending its hand to the incarceration
of a youth age 15, albeit for a grave crime,
the court would first have to
be convinced that his incarceration was necessary to the protection of the
public welfare, or though
this is essentially the other side of the same coin
to the prevention of his recidivism (Miscellaneous Criminal Applications 537/75
Anonymous Plaintiff v. State of Israel, P.D. 30(2) 51). The
court nevertheless held that being a minor did not establish absolute immunity
from arrest and imprisonment
(Miscellaneous Criminal Applications 7136/93
Anonymous Plaintiff (Minor) v. State of Israel (31.12.93 not yet
published)).
(b) Arrest
(i) Arrest for the purpose of investigation
- Some
minors are arrested for the purpose of investigation. The Youth (Trial,
Punishment and Modes of Treatment) Law 1971 prescribes
that a minor who has not
yet reached the age of 14 may not be kept under arrest for a period
exceeding 12 hours without a warrant
from a judge. However, if it is not
possible to bring the minor before a judge within 12 hours, a police officer in
charge of a
police station may order the continuance of his arrest for a further
period not to exceed 12 hours, provided that it is necessary
to do so for the
safety of the public or the minor’s personal safety, or to keep him away
from an undesirable person, or because
the minor is suspected of having
committed a felony punishable by seven or more years’ imprisonment and his
release may lead
to the concealment of evidence; the police officer will record
the reason for extending the arrest, and such reason will be brought
to the
attention of the judge before whom the minor is brought (section 10(2) of the
law).
- A
minor who has reached the age of 14 may not be kept under arrest for a period
exceeding 24 hours without a judge’s warrant;
under special circumstances,
a police officer may order the continuance of his arrest for a further period
not to exceed 24 hours.
If he does so, he will record the reason for extending
the arrest, and such reason will be brought to the attention of the judge
before
whom the minor is brought (section 10(1) of the law). Police sources report
that
in actuality, the right to extend a minor’s incarceration without a
warrant is rarely invoked. At present, following recent
changes in the Criminal
Procedure (Enforcement Powers Arrests) Law, the period of arrest for minors
over the age of 14 is the same
as that for adults.
- Under
section 10(4) of the Youth (Trial, Punishment and Modes of Treatment) Law,
Juvenile Courts are authorized to order that a minor
be kept under arrest for a
period not to exceed ten days, and to extend such period from time to time for
additional periods not
to exceed ten days each. A minor suspect may not be kept
in custody continuously for the same incident, including arrest without
a
warrant, for a period exceeding 20 days, unless the application for further
arrest was submitted with the approval of the attorney
general. From this point
henceforth, the law regarding the duration of arrest is the same with respect to
a minor as it is with
respect to an adult. In other words, a suspect who has
been in custody for 75 days continuously without charges being filed against
him
must be released from custody. However, the court may make his release
conditional on provisions it will prescribe.
(ii) Arrest until termination of proceedings
- The
Youth (Trial, Punishment and Modes of Treatment) Law 1971 makes no express
reference to arrest until the termination of proceedings.
However, the
provisions in chapter three of that law, titles “Arrest, Release and
PreTrial Proceedings”, which concern
holding minors in detention, also
apply to the arrest of minors until the termination of proceedings. The Supreme
Court has held
that a suspect’s being a minor must be considered when
deciding upon arrest until the termination of proceedings, although
this does
not in itself create grounds for immunity (Miscellaneous Applications 190/79
State of Israel v. Doron, P.D. 33(3) 589).. The Supreme Court
has also held that there is no obligation to keep a minor under arrest until the
termination
of proceedings, even in the case of murder (Miscellaneous Criminal
Applications 23/89 Ben Shimon v. State of Israel,
P.D. 42(4) 770). Conversely, the Supreme Court has held that a minor under
the age of 14 may be arrested until the termination
of proceedings, even though
imprisonment may not be ordered for a minor of this age (Miscellaneous Criminal
Applications 6074/97
Anonymous Plaintiff v. State of Israel
(22.10.97 not yet published)). At a petition to imprison a minor until the
termination of proceedings, the minor must be represented
by defense
counsel.
(iii) Hearing of a petition for arrest
- A
petition to arrest a minor is not generally heard by a Juvenile Court judge, but
rather by an ordinary arrests judge (duty judge).
According to existing law,
the court is not obligated to receive a preliminary or full report from the
Youth Probation Service before
handing down a decision regarding a petition to
extend arrest for the purpose of investigation or until the termination of
proceedings.
However, this has been proposed as part of the reform of the Youth
Law (see section 8 below).
(iv) Appeal
- All
court decisions regarding the extension of arrest, bail, or other release
conditions may be appealed to a higher court (section
52 of the Criminal
Procedure (Enforcement Powers Arrests) Law 1996).
(v) Arrest to ensure a minor’s personal safety
- Section
10(3) of the Youth (Trial, Punishment and Modes of Treatment) Law 1971
prescribes that “a judge before whom a minor
has been brought may order
his arrest if it is necessary to ensure the minor’s personal safety or
keep him away from the company
of an undesirable person”. This section
has been criticized, and in practice it is rarely used. The Youth Law reform
bill
addresses this issue.
(vi) Notification of arrest
- Section
11 of the Youth (Trial, Punishment and Modes of Treatment) Law 1971 provides
that the officer in charge of a police station
to whom an arrested minor has
been brought must notify one of the minor’s parents or, if this is not
possible, any person close
to the minor, as soon as possible after the arrest.
However, if the officer apprehends that such notification may prejudice the
welfare of the minor, he will notify a probation officer only. As noted, the
Youth Probation Service must be notified of the arrest
of any minor, or when
there are grounds for bringing a minor to trial.
- In
recent years, the Youth Probation Service has been operating a
“club” in one of the detention centers, where it holds
meetings and
interviews with arrested suspects, and social activities. At some detention
centers, a probation officer is present
on a permanent basis (duty service); his
role is to mediate on behalf of minors, examine options for commencing
rehabilitation, protect
the rights and physical and emotional welfare of minors,
and provide them with information on the legal processes awaiting them.
Since
implementation of the Public Defender’s Regulations 1998, the police have
developed procedures whereby they inform the
Public Defender’s Office
whenever a minor is arrested, and allow a public defender to meet with the minor
in detention.
(vii) Conditions of arrest
- Under
the Youth (Trial, Punishment and Modes of Treatment) Law 1971, a minor may only
be detained in a separate detention center for
minors, or in a wing of a general
detention center that is separate, intended for minors only, and allows no
access or visual communication
with the other wings of the detention center or
their inmates. Notwithstanding this, a minor may be held, for the purpose of
investigation
only, at a police station, provided he is held separately and
there is no contact between him and adult suspects or arrested persons.
If the
police station is located in or near a detention center for minors, the minor
may be kept overnight in that detention center
only (section 13 of the law).
Internal police procedures also recommend separating minors of different ages;
minors who are persistent
offenders and minors who are firsttime offenders; and
minors who are persistent offenders, or who are known to be violent, or who
are
suspected of having committed a felony or a violent or sexual offense, and all
other minors (section 4(I)(3) of the Police Directives
Minors).
- A
significant portion of the criticism surrounding the protection of the rights of
minors involved in criminal proceedings concerns
the conditions of arrest. It
has been claimed that due to overcrowding in detention centers and the
unsuitability of their physical
structure, the
separation between minors and adults, firsttime offenders and recidivists,
etc. is not always maintained. Similarly, the physical
conditions in some
detention centers are inadequate, and minors are not kept occupied or educated
during their free time (this is
particularly important during longer terms of
arrest).
- Over
the years, some of these faults have been remedied. For example, often a minor
who has been arrested until the termination of
proceedings is transferred to a
juvenile prison, where conditions are much better than in detention centers. In
some cases, the
minor is placed under house arrest on condition of bail; for the
minor, house arrest is preferable to detention in a juvenile prison.
However,
the police claim that this solution is problematic in the case of minors whose
families have difficulty supervising them.
- By
law, the Minister of Labor and Social Affairs is allowed to declare a closed
residence (used for the custody and rehabilitation
of juvenile offenders) a
detention center. The purpose of this would be to ameliorate the physical and
psychological difficulties
associated with incarceration in a detention center.
However, no such declaration has ever been made, as professionals fear that
housing minors who have been sent to detention with minors who have been sent
for treatment and rehabilitation will both obstruct
the therapeutic process and
turn the closed residence into a detention center. The Ministry of Public
Security and the Ministry
of Labor and Social Affairs are currently discussing
the possibility of jointly establishing a detention center.
- The
conditions of arrest at police stations are also unsatisfactory. A 1998 study
(Habib et al., 1998) found that only 12% of the
police stations in
Israel reported fully complying with the rules regarding arrest, such as
separating minors of differing ages,
and new from repeat offenders.
Children’s rights organizations have claimed that there are false arrests
and arrests that
extend beyond the time required for the purpose of
investigation. As noted, the new legislation regarding arrest has increased the
courts’ surveillance of police practices.
(viii) Alternatives to arrest
- Cooperation
among the court, the public defender’s office and the Youth Probation
Service promotes the possibility of finding
alternatives to arrest, which are
always considered preferable (see section 13(b) of the Criminal Procedure
(Enforcement Powers
Arrests) Law and sections 5 and 8 of the Basic Law: Human
Dignity and Liberty), particularly with regard to minors; this preference
is
also reflected in case law (Miscellaneous Criminal Applications 604/88 Tamir
v. State of Israel, P.D. 42(3) 617; Miscellaneous Criminal
Applications 2955/91 Danino v. State of Israel, P.D. 45(3)
832).
- Once
an indictment has been filed, a court may order a minor to be sent to an open or
closed residence for observation and diagnosis
for a period not to exceed 90
days (section 20(a)(1) of the Youth (Trial, Punishment and Modes of
Treatment) Law). On the petition
of a probation officer, the superintendent of
residences, or the minor, a Juvenile Court may vary the observation order, issue
any
instruction necessary for its implementation, extend it for an
additional period not to exceed one month, or revoke it (section 20(b)
of the
law).
The observation order must be made with prior coordination with the
superintendent of residences and the probation officer, to ensure
that a
suitable residence is found for the minor, and that the residence has room to
admit him. Although observation is also an
alternative to detention,
professionals agree that it should be used in exceptional cases only, and that
the need remains to develop
a special framework that is expressly an alternative
to detention.
(ix) Data on the arrest of minors
- According
to police data, 4,131 minors were arrested in 1998. Twelve percent of the
arrests lasted for up to 12 hours, an additional
31% of them lasted for between
12 and 24 hours, 11% of them lasted for between 24 and 48 hours, 26% of them
lasted for between two
and seven days, 14% of them lasted for eight or more
days, and 5% of the arrests extended until the termination of proceedings.
In
twothirds of these cases, the minors arrested were ages 1617.
Table 69
Arrest of minors and duration of arrest in 1998, by
age (in numbers)
|
|
|
Up to 12 hours
|
1224 hours
|
2448 hours
|
27 days
|
8 or more days
|
Until the termination of proceedings
|
Total
|
4 131
|
514
|
1 277
|
442
|
1 083
|
599
|
216
|
Age
|
|
|
|
|
|
|
|
12
|
32
|
7
|
11
|
3
|
8
|
2
|
1
|
13
|
115
|
17
|
31
|
12
|
30
|
20
|
5
|
14
|
450
|
70
|
124
|
64
|
109
|
64
|
19
|
15
|
851
|
90
|
263
|
99
|
230
|
127
|
42
|
16
|
1 213
|
161
|
368
|
120
|
316
|
190
|
58
|
17
|
1 469
|
169
|
480
|
144
|
389
|
196
|
91
|
Source: BenArie and Zionit, 1999.
(c) Open and closed residences
- A
closed residence, as defined in section 1 of the Youth (Trial, Punishment and
Modes of Treatment) Law 1971, serves as an outofhome
residence or locus of
custody for minors who have been referred to them by the superintendent of
residences.
- A
minor may be sent to a closed residence by the court in any of the following
instances: (a) under the Youth (Care and Supervision)
Law 1960, as a means of
providing care and supervision to a minor who has been declared in need of
protection (see also Chapter VII);
(b) under the Youth (Trial, Punishment
and Modes of Treatment) Law, as punishment following conviction within the ambit
of section
24(1) of that law; or (c) as a mode of treatment as
determined under section 24(2) of said law. The judge must decide a priori
which alternative he
will choose. The distinction between being sent to a
closed residence with a conviction, or being sent to one as a mode of treatment,
is very significant, and will be noted in the crime register
accordingly.
The Supreme Court has instructed that punishment for a felony in the form of
incarceration in a closed residence should
be handed down with a conviction, so
to emphasize the severity of the offense (Criminal Appeal 403/88 Anonymous
Plaintiff v. State of Israel, P.D. 42(3) 570).
- The
residences that house minors who have been convicted of committing an offense
are operated by the Youth Protection Authority of
the Ministry of Labor and
Social Affairs. The Authority’s residences exist along a continuum, and
include closed residences,
open residences in the community, and crisis
intervention centers. As noted, these frameworks also serve minors in need of
protection.
Most of the minors who are sent to a residence for an infraction of
the law are sent to closed residences, which are relatively
small (housing
between 30 and 40 minors) and offer educational and therapeutic services. The
existence of a continuum of services
allows for a minor to be transferred from a
closed to an open residence toward the end of his sentence or period of
confinement,
in preparation for his return to the community. This is also
stipulated by section 31 of the Youth (Trial, Punishment and Modes
of Treatment)
Law: “When a Juvenile Court has ordered a minor remanded to a closed
residence, the superintendent of residences
may remove him therefrom to an open
residence, provided he has spent a reasonable period of time in the closed
residence and circumstances
justify his transfer”. To improve the
efficiency of the transfer of inmates between residences, the Youth Protection
Authority
together with JDCIsrael and ELEM has established facilities with both
an open and a closed wing.
- Under
section 25(a) of the Youth (Trial, Punishment and Modes of Treatment) Law, the
court may not order a convicted minor to serve
a sentence in a closed residence
that is in excess of the sentence prescribed for the offense of which he has
been convicted. However,
a remand to a residence as a means of treatment must
take into account the convicted minor’s treatment and rehabilitation needs
as assessed by the probation officer, such that the duration of the sentence
takes these into account. Further, such a sentence
is contingent on finding a
residence that can admit the minor, so as to afford him the proper conditions
for rehabilitation.
- Also
under section 25(a)of this law, a closed residence may be an alternative to
imprisonment, but cannot itself be considered imprisonment.
The Supreme Court
has held that when a court convicts a minor and sentences him to imprisonment,
it is not authorized to order the
minor to serve his prison sentence in a closed
residence (Miscellaneous Criminal Applications 1316/90 Anonymous Plaintiff
v. State of Israel, P.D. 45(1) 309).
- Under
section 42 of the law, a minor remanded to an open or closed residence who
escapes therefrom, or whose release therefrom has
been canceled, or whose leave
therefrom has expired, may be arrested by a police officer without a warrant (as
he has escaped from
lawful custody, which is grounds for arrest without a
warrant) and kept under arrest until he has been returned to the residence.
The
police must immediately notify the superintendent of residences of the arrest,
and act to ensure the swift return of the minor
to the
residence.
(i) Periodic review of placement
- According
to the Youth (Trial, Punishment and Modes of Treatment) (Conditions of Minors in
Residences) Regulations 1976, the case
of any minor who has been placed in an
open or closed residence will be reviewed by a special committee at least twice
a year; the
committee will assess his condition and determine an education
program for him (regulation 17). Wherever possible, the director
of the
residence will summon the minor or his parent to appear before the committee and
make a statement (regulation 19). In recent
years, the Youth Protection
Authority has developed a clinical followup to evaluate the status and progress
of the residents.
(ii) Release from a closed residence
- A
minor held in a closed residence may be released after one year or, in special
circumstances, before this time, at the discretion
of a release committee (see
section 36 of the Youth (Trial, Punishment and Modes of Treatment) Law 1971).
Regulation 3 of the Youth
(Trial, Punishment and Modes of Treatment) (Procedures
in Release Committees) Regulations states that “A petition for release
from an open or closed residence pursuant to section 36(a) of the law may be
filed by the minor, his parent, the superintendent of
residences, or the
minor’s representative”. Regulation 6 provides that “the
[release] committee may hear a case
not in the presence of the minor, although
if the committee finds that there is no prima facie reason for releasing the
minor, it
must hear the case again after granting the minor or his parent an
opportunity to state his claims”. Regulation 11 makes similar
arrangements with regard to petitions to change conditions.
- The
Juvenile Court may, on the petition of the superintendent of residences and
after having heard the minor and his parent, extend
for a further year the
period that a minor may remain in a residence, if it deems this to be in the
minor’s best interest,
or continue his treatment or vocational training
(section 33 of the law). The authority to treat a minor in a closed residence
extends
until the age of 20 (section 34 of the law). Some see in the ability to
extend a minor’s stay in a closed residence for the
purpose of treatment
an infringement on his rights, given that a minor’s stay in a closed
residence for the purpose of punishment
may not be extended.
(iii) Rehabilitation and reintegration into
society
- The
Youth (Trial, Punishment and Modes of Treatment) (Treatment Followup)
Regulations 1976 define the role of the followup officer
with regard to minors
in residences. Regulation 5 prescribes that “the followup officer will
begin handling a case six months
prior to the lapse of the warrant placing the
minor in the residence, or earlier, at the discretion of the superintendent of
residences”.
A minor who has been released from a residence will remain
under the supervision of the followup officer for at least one year (section
38
of the Youth (Trial, Punishment and Modes of Treatment) Law. According to
regulation 6, “should the followup officer be
of the opinion that the
period of treatment should be extended for more than one year after the date of
release, he will make a reasoned
petition to the superintendent of residences,
who will then notify the followup officer and any person under his care of his
decision
by no later than one year after release”.
- Regulation
4 of the Youth (Trial, Punishment and Modes of Treatment) Regulations 1976
defines the role of a followup officer as follows:
“In performing his role under section 39 of the law, a followup officer
will ensure the physical and emotional wellbeing, professional
rehabilitation
and absorption into society of the person under his care, taking into account
the attributes of the person under his
care”.
(iv) Conditions and rights of minors in
residences
- The
Youth (Care and Supervision) (Conditions of Minors in Residences)
Regulations 1976 prescribe the conditions under which a minor
is to be kept
in a residence. Inter alia, they require the director of a residence to
notify a minor arriving therein of his rights
and obligations; to inform the
minor’s parent on the minor’s arrival at the residence (unless this
is not in the minor’s
best interest); to provide educational, social, and
recreational activities and medical treatment; to make provisions for religious
observance; and to arrange for the reception of visitors and the exchange of
mail (regulations 5, 6, 8, and 9).
- The
regulations allow the person in need of protection to submit a complaint about
the conditions of his residence, and require the
director of the residence to
convey this complaint to the appropriate State authorities with due haste
(regulation 10). The disciplinary
measures to be used in residences are to be
solely educational; emotional and corporal punishment and denial of food are
prohibited;
no penalty that is liable to cause physical or emotional harm may be
imposed on the minor in need of protection, nor may he be placed
in solitary
confinement (regulation 13). The staff of the residence may only deprive a
person in need of protection of his rights,
use force against him, or place him
in solitary confinement if educational considerations make this imperative, or
in selfdefense,
or to restrain a person in need of protection who is causing a
disturbance (regulations 1416). Regulations 1416 also prescribe the
procedures
for authorizing and reporting these acts.
- Keeping
a minor in a residence is subject to the Supervision of Residences (Keeping
Children in an Ordinary Residence) Regulations
1965. During the past two years,
the Youth Protection Authority has been working to improve surveillance of the
residences it operates
(see Chapter VII).
(v) Lack of space in residences
- Until
recently, referral to a closed residence was not available to the entire
population of youth in Israel. This denied a segment
of this population an
appropriate rehabilitative option, and forced the courts to either impose
imprisonment, or refrain from imposing
any sanction. As noted, a closed
residence for Arab youth was only established in 1999, after the National
Council for the Child
had petitioned the Supreme Court. In two rulings in this
matter, the court iterated the necessity of establishing a closed residence
for
Arab youth ((Petition to the) High Court of Justice 3437/92 National Council
for the Child v. Minister of Labor and Social Affairs, P.D. 47(1)
148; (Petition to the) High Court of Justice 1070/96 National Council for the
Child
v. Minister of Labor and Social Affairs (13.7.97 not yet
published)). Similarly, the number of places for girls in closed residences
does not meet requirements. At present,
additional places are being designed
for the purposes of diagnosis and crisis intervention in a closed residence for
girls.
(d) Imprisonment
- In
July 1999, 133 minors were in prison. Of them, 64 had been sentenced to up to
12 months in prison, 44 had been sentenced to between
12 and 24 months in
prison, and 25 had been sentenced to over two years in prison. This was a first
prison sentence for 81 of these
minors.
Terms of imprisonment
- Under
section 25(e) of the Youth (Trial, Punishment and Modes of Treatment) Law,
“A minor on whom imprisonment has been imposed
may not be held in prison
together with a person who is not a minor”. Minors are held in only one
prison, in a special wing,
away from the other prison wings. Minors under
arrest may also be held in this wing. At any given time, there are some 130
youth
ages 1418 in the minors’ wing, most of whom have been sentenced, and
some of whom are under arrest. The wing is divided into
three subareas: the
reception and selection area, the advanced area, and the rehabilitation area.
The minors are usually held in
cells of two people, although some cells
accommodate between four and six people. A set schedule governs the youth wing,
which includes
four hours of formal study (sometimes combined with work) at the
education center in the wing, and enrichment and leisure activities.
The staff
of the youth wing comprises education officers, social workers and a
psychologist. Each minor who arrives on the wing
has a treatment plan. In
addition, there are various therapy groups, such as a group that is preparing
for release, a communication
group, a group that works on improving conflict
resolution skills, and so forth. In 1999, a new project was initiated by the
Rehabilitation
of the Offender Authority, in cooperation with the Youth
Probation Service and the Prison Authority, in which each minor has a
rehabilitation
plan drawn up for him while he is in prison; in cooperation with
community services, the minor continues to receive assistance two
years after
his release from prison.
6. Sentencing of children, capital punishment, and life
imprisonment
- Under
section 25(d) of the Youth (Trial, Punishment and Modes of Treatment)
Law 1971, a court may not impose a prison sentence on
a minor who is under
the age of 14 at the time of sentencing. When an offense has been committed by
a person who was a minor on
the day he committed it, the death penalty may not
be imposed. In any case, the death penalty is not imposed in Israel, even on
adults. (Since establishment of the State, the death penalty has only been used
once: against Nazi war criminal Adolf Eichmann.)
Under section 25(b) of the
law, it is not mandatory to impose a life prison sentence, a mandatory prison
sentence, or a minimum penalty
on a minor (even if these are so prescribed by
law for offenses the minor is convicted of
having committed). Unlike the death penalty, there is no absolute
prohibition against imposing a life prison sentence on minors.
The Supreme
Court has held, in a majority decision, that the
court has the discretion to
review each case on its merits; should it reach the conclusion that the
appropriate punishment is life
imprisonment, and should it consider that this
punishment is just and necessary, it may sentence a minor to life imprisonment
(Miscellaneous
Criminal Applications 530/90 John Doe v. State of
Israel, P.D. 46(3) 648). One Supreme Court justice, basing herself,
inter alia, on the Convention, expressed the view that life imprisonment
should
only be imposed on a minor in exceptional cases; however, her opinion was deemed
as “needing further study” by
the justices who sat with her
(Miscellaneous Criminal Applications 3112/94 Abu Hassan v. State of
Israel (11.2.99 not yet published)). In practice, life imprisonment is
imposed on minors very rarely; to date, it has been imposed on three
17yearolds
who stabbed a bus passenger to death as part of the “initiation
rite” of a terrorist organization; and on
a youth age 17 and 10 months who
strangled his employer to death after she commented on his work and delayed
payment of his salary
for two days.
7. The rehabilitation and reintegration into society of youth
offenders
and youth at risk of becoming offenders
- As
discussed above, many of the alternatives for the rehabilitation of juvenile
offenders exist within the modes of treatment prescribed
by the Youth Law,
and implemented by the Youth Probation Service and the Youth Protection
Authority. However, most of these alternatives
exist for minors who have
already been charged, or for whom a criminal file has been opened. In addition,
a number of other services
help minors who are in trouble or at risk of criminal
behavior; they work in cooperation with the Youth Probation Service in treating
youth suspected, accused or convicted of committing an offense. The Youth
Advancement Department of the Ministry of Education, the
Service for
Children and Youth and the Service for Women and Girls of the Ministry of
Labor and Social Affairs help disaffected youth
who have dropped out or are at
risk of dropping out of school or work (some of whom are already involved in
delinquent activity).
The Service for Children and Youth reports serving
about 10,000 young people a year, through 260 social workers; the Service
for
Women and Girls reports serving some 7,000 girls and young women ages 1322.
The Youth Advancement Department of the Ministry of
Education reports serving
13,500 young people ages 1418 through municipal social welfare departments
throughout the country. These
services offer diverse educational, preventive
and therapeutic programs (e.g., programs for completion of matriculation,
support
with job integration, preparation for military service, drug prevention
programs), using individual and group methods. The AlSam
Association offers
counseling, treatment and rehabilitation at centers throughout the country for
young people involved with drug
abuse, and operates a number of projects
(primarily in conjunction with the education system) to prevent the use of
drugs. Table
70 presents the principal agencies that help such minors, by
organizational affiliation, contact with the police, primary functions,
and
target population.
Table 70
Principal agencies treating minors suspected of having
committed an offense
|
Organizational affiliation
|
Is contact with the police mandated by statute?
|
|
Target population
|
Youth probation officers
|
The Youth Probation Service, Ministry of Labor and Social Affairs
|
Yes
|
− Receive report from police on files opened, arrests, releases
− Report to police before the fate of a file is sealed
− Provide and supervise treatment: noprosecution of crime, drugs;
mediation between offender and victim
− Maintain contact with arrested minors; treat, rehabilitate and supervise
minors during their involvement in the criminal
system |
Minors (age 1217) suspected of having committed an offense under the
law
|
Youth interrogators
|
Youth Probation Service, Ministry of Labor and Social Affairs
|
Yes
|
Coordinate investigation of minors (conducted by police)
|
Minors (under age 14) suspected of having committed a
morality offense
|
Youth Protection Authority
|
Ministry of Labor and Social Affairs
|
Yes
|
Assess, treat and supervise minors under court order
|
Convicted minors sentenced to a closed residence; minors in need of
protection
|
Table 70 (continued)
|
Agency
|
Organizational affiliation
|
Is contact with the police mandated by statute?
|
Primary functions
|
Target population
|
Child protection officers under the Youth Law
|
Service for Children and Youth, Ministry of Labor and Social Affairs
|
Yes
|
Treat minors not criminally liable (under age 12) who are suspected of
having committed an offense
|
Minors not criminally liable (under age 12) suspected of committing an
offense
|
Schools
|
Ministry of Education
|
No
|
Disseminate information, implement crime prevention projects
|
Minors suspected of having committed an offense; minor victims
|
Psychological counseling service
|
Ministry of Education
|
No
|
Develop programs to prevent violence and drug abuse
|
Students and school staff
|
Service for Children and Youth
|
Correctional Services Department, Ministry of Labor and Social
Affairs
|
No; procedures exist for reporting offenses
|
Treat minors at risk of criminal behavior
|
Minors suspected of or at risk for committing an offense
|
Youth Promotion Units
|
Youth and Society Administration, Ministry of Education
|
|
Develop crime prevention programs
|
|
AlSam
|
Registered association
|
No
|
Treat minors referred for treatment; implement drug prevention projects
|
Minors who abuse drugs
|
Drug Prevention Authority
|
Government agency
|
|
Set policy concerning drugrelated problems; initiate prevention projects
(e.g., with the civil guard)
|
Youth involved in drug use
|
The National Council for the Child
|
Voluntary organization
|
No
|
Examine complaints of unfair treatment and violations of rights of minors
in criminal proceedings; propose laws; raise public awareness
|
Minors suspected of having committed an offense; victims
|
Defense for Children International (DCI)
|
Voluntary organization
|
No
|
Examine complaints of unfair treatment of minors in criminal proceedings;
propose laws; give legal advice to minors
|
Minors suspected of having committed an offense
|
ELEM Youth in Distress
|
Voluntary organization
|
No
|
Help develop a hostel; raise public awareness; help establish a network of
therapeutic coffee houses for youth; operate a mobile unit
that locates and
assists youth at night
|
Minors in need of protection or at risk for criminal behavior
|
8. The proposed reform of the Youth (Trial, Punishment
and Modes of Treatment) Law
- The
Ministry of Justice has recently been discussing a proposal to amend the Youth
(Trial, Punishment and Modes of Treatment) Law
1971. The amendments in question
would reflect a new approach, in the spirit of the UN Convention on the Rights
of the Child: one
that would protect the dignity and rights of minors suspected
or accused of having committed an offense, and consider their developing
abilities and best interests. Like the current provisions of the law, the
proposed amendments are based on a desire to reform and
rehabilitate minors,
through suitable punishment and treatment.
- The
amendments would ensure that the dignity of any minor involved in criminal
proceedings would be safeguarded, and his age considered.
Minors would no
longer be arrested if the end goal of arrest could be obtained with the least
possible infringement of their liberty;
an arrest would only be made if the age
of the minor and the effect of the arrest on his welfare and development had
been taken into
account. Arrest would be for the shortest period necessary to
achieve its object.
- Also
under these amendments, if a court hearing a petition to arrest a minor found no
grounds for his arrest, yet believed the minor
was in danger of death or injury
and felt there was no safe place for him, the court would order the arrest of
the minor for a period
not to exceed 24 hours, for the minor’s
protection, and to allow a child protection officer to exercise his authority.
Further,
should the court believe it possible to find a way to protect the minor
for more than 24 hours but not exceeding 48 hours, the court
would order the
minor’s arrest for the required period.
- The
amendments further stipulate that a parent of a minor who is under 14 years of
age will be summoned to a hearing on his arrest.
If it is not possible to
summon the parent, another person close to the minor will be summoned, and this
person will be given the
opportunity to make a statement. A parent or relative
will not be summoned if their presence would be injurious to the minor’s
wellbeing. In such cases, an order will be given to a probation officer. A
minor suspected of having committed an offense will
be summoned to an
investigation via his parent, and the parent will be summoned to be present at
the investigation of the minor,
unless the parent cannot be traced through
reasonable efforts.
- The
proposed amendments detail the procedures for investigating a minor, and present
the explicit wording of the warning and explanation
of rights that the
investigator must declaim to the minor at the commencement of the investigation.
The amendments strive to respect
the human dignity of a minor held under arrest
or imprisoned, and to provide him with conditions suited to his age and needs.
The
minor will be permitted to maintain contact with the members of his family;
the minor’s welfare will be specially supervised.
The punishment
arrangements proposed in these amendments will also apply to an adult who
committed a specific offense when he was
a minor.
9. Summary
- Israel’s
criminal justice system aims to protect children, as reflected in its separate
system of investigation, adjudication
and punishment for minors, staffed by
professionals who are trained to handle minors; its special proceedings and
procedures to prevent
the stigmatization of minors; and its integration of
treatment and rehabilitation into all aspects of legal proceedings.
Nevertheless,
the system has been criticized severely. First, it has been
claimed that the statutory arrangements are meant to protect minors,
but not to
safeguard their rights. Both legislative initiatives that would ensure suitable
representation for minors, and the proposed
amendments to the Youth (Trial,
Imprisonment and Modes of Treatment) Law intend to close gaps in the existing
legislation. Second,
according to senior officials in the criminal justice
system, despite significant improvement in the awareness of children’s
rights in criminal proceedings and their protection by children’s rights
organizations, minors’ rights are still being
violated, and police staff
have voiced concern about the implications of having to apply principles arising
from the rights of the
child. Critics have objected to what they feel is an
excessive use of arrest, and to the conditions of arrest of minors. Concern
has
also been raised that minors’ rights are being violated, and the ability
to rehabilitate them is being impeded, by the
lack of space in closed
residences. Lastly, concern has been expressed over the different treatment of
Jewish and Arab minors.
B. Articles 32-36 of the Convention - Children in situations
of exploitation,
including physical and psychological recovery and
reintegration into
society
1. Economic exploitation of children, including child
labor
- This
section will examine the measures taken to prevent the economic exploitation of
children and to protect working children, as
required by article 32 of the
Convention.
The legal situation
- The
principal law dealing with the employment of minors is the Youth Employment
Law 1953. Another, supplementary law is the Apprenticeship
Law 1953, which
covers minors who acquire a trade through apprenticeship. The Youth Employment
Law and the Apprenticeship Law, which
were enacted at the same time, were
designed to protect working minors and set the frameworks and conditions of
their employment.
In 1998, the Youth Employment Law was amended in an effort to
adapt it to the standards of the Convention.
- Since
1953, Israel has been a party to a number of treaties of the International Labor
Organization (ILO): the Conventions on Medical
Examinations Concerning the
Capacity and Employment of Children and Youth in Industry and Nonindustrial
Professions (Treaties Nos.
77 and 78, respectively, 1946); the Conventions
on Night Labor of Children and Youth in Industrial and Nonindustrial Trades
(Treaty
No. 90, 1948, and Treaty No. 79, 1946). Since 1980,
Israel has been a party to the Convention on the Minimum Age of Employment
(Treaty
No. 138, 1973).
- Definition
of a working minor. The legal definition of a “workplace in which a minor
works” is very broad; only a few
workplaces are outside the bounds of the
definition. Consequently, the blanket of protection provided by the law covers
the majority
of working minors. For example, the Youth Employment Law includes
in its definition of work the employment of a minor with his parents
for the
purpose of their business or occupation even when the business is not for
profit, excluding nonindustrial work and agricultural
work on the parents’
farm.
- Minimum
working age. Israeli law considerably restricts the ability of minors to work.
Broadly speaking, it prohibits the employment
of a minor who is under the age of
15 (section 2 of the Youth Employment Law). Section 5 of this law prohibits
minors from working
in certain places, and section 6 of the law defines types of
work that are prohibited. It is prohibited to employ minors who are
obligated
to be in school under the Compulsory Education Law 1949, unless the Minister of
Education is convinced that the minor is
unable to study in an ordinary manner
at a recognized educational institution, or the minor is working as an
apprentice under the
Apprenticeship Law. Since the Compulsory Education Law
applies to minors up to age 16, in practice minors may only really be employed
on a regular basis from the age of 16. However, during official school
vacations it is permissible to engage minors over the age
of 14 in light work
that is unlikely to harm their health or development (section 2A of the Youth
Employment Law). The most recent
amendment to the Youth Employment Law repealed
the prohibition on peddling.
- Restriction
of dangerous work. The Youth Employment Law and the regulations enacted there
under provide that even minors who may
be employed, may not be employed in every
place. The Minister of Labor may prohibit certain types of work, if these are
liable to
adversely affect the minor’s physical, mental or educational
development. The Youth Labor (Prohibited and Restricted Work)
Regulations 1954
restrict the employment of minors, and specify places and types of work in which
it is prohibited to employ a minor.
These include underground work in a mine or
quarry, work in a slaughterhouse, the production and assembly of explosives,
work involving
contact with chemical materials, work in a hospital where there
is danger of contracting a disease, work in a microbiology laboratory,
work on
dangerous machines such as presses, and work on or near machinery that emits
radiation. The regulations also specify objects
that minors are prohibited from
moving without mechanized lifting equipment, and restrict the load that a minor
is permitted to carry
when engaged as a porter (12.5 kilograms for a boy, eight
kilograms for a girl, and the number of hours (two) per day during which
a minor
may work as a porter.
- Medical
examinations. The law stipulates that, prior to employment, a thorough medical
examination must be performed on a minor to
assess whether he is physically fit
to do the work for which he has been hired. The law prohibits employing a minor
if he has not
yet undergone such an examination and been declared medically fit
to do the job in question or a similar job, or if said job will
pose a health
risk to or require undue physical effort from the minor. In addition, minors
are to be examined periodically, to ensure
that the work they are doing is not
having an adverse effect on their development and health. These examinations
are to be conducted
by the minor’s family physician, at the expense of the
State (section 11 of the Youth Employment Law). Special procedures
are to be
followed with regard to work that requires fitness examinations.
- Should
a medical examination discover that a minor is not medically fit to perform
tasks for which a child of his age is generally
fit, or that the minor is
not medically fit to do the specific job for which he has been hired, or that
the work is adversely affecting
the minor’s health, the examining medical
establishment will so inform the Regional Inspector of Labor, through the
minor’s
parents, and the minor’s employer (section 13 of the Youth
Employment Law).
- An
employer receiving notice as aforesaid must terminate the employment of the
minor within ten days of having received the notice
(section 14 of the Youth
Employment Law). Section 16 of the law extends it to young people up to the age
of 21, by providing that
medical examinations be performed when a young person
is employed in work that poses a particular danger to his
health.
- Hours
of work and rest. The law restricts the number of days and hours a minor may
work per week. Section 20 of the Youth Employment
Law stipulates that a minor
may not be employed for more than eight working hours a day and forty working
hours a week. Under section
22, the employer is obligated to allow a minor to
take breaks to rest and eat; the duration of these breaks is determined in the
law. In addition, work hours must include short, sanctioned breaks for rest and
fresh air (section 20). Section 21 of the Youth
Employment Law provides that
minors may not be employed on the weekly rest day of his religion. Section 25
of the Youth Employment
Law prohibits a minor from engaging in night work, where
“night” is defined, for a minor to whom the Compulsory Education
Law
applies, as being the 12 hours between 20:00 and 08:00, and for a minor to whom
the Compulsory Education Law does not apply,
as being the ten hours between
22:00 and 06:00. The Minister of Labor and Social Affairs may make exceptions
to these restrictions,
for example by issuing a permit to employ a minor for
part of the night, or for the purpose of doing shift work (section 25 of the
Youth Employment Law). Even when a permit has been granted under section 25, a
minor must be guaranteed a rest of at least 14 hours
between one
working day and the next (section 26(a)). Overtime employment of a minor,
beyond the hours permitted by law, is a criminal
offense, although the minor
himself is not regarded by the law as having committed the offense or even as
having been an accessory
to the offense of his employer. The Supreme Court has
held that employing a minor not in accordance with the restrictions set down
in
law does not prevent the minor from later demanding wages for extra hours worked
(AA 150/63 Mizrahi v. Anstock, P.D. 17 1361).
- Social
security. Minors are entitled to the same rights that accrue to adult
employees, such as sick leave and severance pay. They
are entitled to a
vacation of 18 days per annum, compared to the annual minimum vacation of 14
days owed to an adult employee under
the Annual Leave Law 1951 (section 27 of
the Youth Employment Law). Working minors are entitled to a minimum wage,
although the
minimum wage for a minor is significantly lower than that owed to
an adult (see the Minimum Wage (Working Youth and Apprentices)
Regulations 1987).
- An
employer is required to pay social security for the minors he employs. These
payments are made at the employer’s expense,
and should not be deducted
from the working minor’s salary. In any case, a working minor is entitled
to compensation for an
injury incurred at work, even if his employer has failed
to make social security payments for him.
- Minors
may be taxed on their income, should they exceed the tax threshold. Minors
ages 1618 have an additional tax break (an amount
on which they need not
pay taxes), above that for adults.
- Studying
while working. The law encourages working minors, even those who are no longer
obliged by the Compulsory Education Law,
to attend school and acquire an
education. Working minors are obliged by law to participate in vocational
training one [full] day
a week (or three partial days a week), for a total
of up to nine hours a week. The object of this is to train the minor in a trade
or for a job; training takes place in accordance with a study program determined
by the Minister of Labor and Social Affairs. Employers
are bound to release
minors from their work during study hours, and are prohibited from deducting
from the minor’s salary the
hours during which the minor was absent from
work due to studies. Vocational training is provided free of charge (section
27A of
the Youth Employment Law). Some working minors aim to acquire a
particular trade; however, they may only be employed in this trade
through an
apprenticeship, under the Apprenticeship Law. Apprentices may not be given work
that is unrelated to the purpose of the
apprenticeship; they are entitled to a
minimum wage (slightly lower than the minimum wage of a working minor). The
employer is obligated
to release the apprentice to participate in authorized
vocational training, without deducting this time from
his salary.
- In
order to implement the law, special frameworks have been established under the
auspices of the Ministry of Labor and Social Affairs,
which combine work and
study. Approximately 16,000 minors study in such frameworks. Beginning in 11th
grade, most of these minors
work outside of school, usually for three days a
week, and are paid a wage. The frameworks teach vocational studies and give the
youth practical work experience in fields such as automobile mechanics,
electrical work, carpentry, printing, hairdressing and industrial
sewing; the
studies are specifically designed for youths age 16 and over. They also teach
the students good work habits and help
them adjust to a work environment. In
addition to payment for their work, the students may be eligible to receive a
certificate
of completion (see Chapter IX).
- Youth
Vocational Rehabilitation Centers (“Miftanim”) are operated by the
Youth Vocational Service of the Ministry of Labor
and Social Affairs and the
local authorities. These centers offer basic studies, vocational training and
work for minors who are
unable to continue their studies in the regular
education system due to serious adjustment problems. The centers also teach
social
skills and offer therapeutic support. Approximately 2,500 minors
attend 34 Youth Vocational Rehabilitation Centers throughout the
country.
- Special
jobs. The Youth Employment Law makes special provisions for minors who
participate in performances, television advertisements
and films (section 4).
The general rule is that a child under the age of 15 may not be employed in a
public or artistic performance,
a performance for the purpose of advertising, or
filming for the purpose of advertising. Exceptions to this rule are only made
by
permit, which the Minister of Labor and Social Affairs may grant to a
specific minor for a limited time.
- An
employer who wishes to obtain such a permit must submit a description of the
performance program; the number of hours the minor
will need to work; the type
of task the minor will be required to perform (e.g., rehearsals,
performances, etc.); the consent of
the minor’s parent or guardian; a
physician’s report that the minor is medically fit to be employed in this
manner; and
an assessment from the principal of the minor’s school that
his participation will not harm his studies (regulation 9). The
permit will
cite the conditions necessary to preserving the health and development of a
minor participating in such a performance
(e.g., training hours, the need
for an application for night employment, etc.). The individual circumstances,
as well as the age,
of each minor will also be considered. No information was
obtained on the number of permits granted in a given year, or on the
characteristics
of minors to whom permits were granted.
- A
recent amendment to the law, which quoted the Convention on the Rights of the
Child, determined that a minor who is able to express
his own opinion should be
entitled to express it regarding the granting of a permit for his employment,
and appropriate weight should
be given to his opinion, based on his age and
level of maturity.
- Data
on working minors. Table 71 reveals that 7% of the minors ages 1517 are
employed (7.7% of the boys and 6% of the girls). The
percentage of Arab boys
who are employed is greater than that of Jewish boys, but the percentage of
girls who are employed is smaller
among Arab girls. It should be noted,
however, that in the Arab sector, particularly in villages, minors engage in
work (primarily
in agriculture and housework) that is not usually reported.
Given this and the high rates of illiteracy in this sector, it is possible
that
more youth work in the Arab sector than is reported; this may be particularly
true of girls. Further, it appears that most
of the Jewish youth who are
employed also attend school or some other education framework, while most of the
Arab youth who work
do not attend any education framework (see also Chapter
IX).
Table 71
Work and study among youth ages 1517 in 1998, by
population group (in %)
|
|
|
Arabs
|
Total Youths Employed
|
6.8
|
7.5
|
4.5
|
Of them: attend school
|
5.1
|
6.4
|
0.6
|
do not attend school
|
1.7
|
1.1
|
3.9
|
Boys
|
|
|
|
Employed
|
7.7
|
7.5
|
8.4
|
Of them: attend school
|
5.1
|
6.2
|
1.3
|
do not attend school
|
2.6
|
1.3
|
7.1
|
Girls
|
|
|
|
Employed
|
6.0
|
7.6
|
0.6
|
Of them: attend school
|
5.1
|
6.6
|
|
do not attend school
|
0.9
|
1.0
|
0.6
|
Source: BenArie and Zionit, 1999.
- Minors
employed illegally. In a 1993 study (Feingold, 1993), interviews were conducted
with 45 working children ages eight15 from
several Israeli cities. Of them, 20
were nativeborn Israelis, 19 were new immigrants from the former Soviet Union,
and six were
Arabs from the West Bank and Gaza. The interviews revealed
that children are being employed for more hours than is permitted by
law, and
earn less than the minimum wage. Many of the children interviewed had external
marks of poor health: injuries, scars,
dental problems. They reported
suffering cuts, bruises and falls, but did not report having been hospitalized
for a workrelated
injury. The researchers estimated that the number of children
under the age of 15 who were unlawfully employed in Israel at that
time reached
10,000; most of them were Arabs from the West Bank and Gaza. We may assume
that the transfer of a substantial part
of these territories to the Palestinian
Authority, and the restrictions on the employment of residents of these
territories in Israel,
have caused this number to drop
significantly.
- Surveillance
and penalty. Under the Youth Employment Law and the Apprenticeship Law,
councils were established to supervise the employment
of minors: the Council on
Working Minors and the Apprenticeship Council. Section 32 of the Youth
Employment Law obligates employers
to make the provisions of the law known to
the minors in his employ. The Youth Employment Law and the Apprenticeship Law
prescribe
penalties of a fine and imprisonment for anyone who employs a minor in
contravention of the law and regulations (section 33). The
Youth Employment Law
prescribes penalties for a parent who allows a minor to work in contravention of
the law, unless he proves that
he did not know his actions were in contravention
of the law, or took all appropriate steps to prevent contravention of the law
(section
37). A similar liability is ascribed by section 38 of the law to
managers, directors or partners of establishments that employ minors
in
contravention thereof. Special liability is ascribed to agents of performance
and film (section 33d). All of these sections,
like many other protective labor
laws, impose strict criminal liability on the employer.
- In
1998, the Law Enforcement Department of the Ministry of Labor and Social Affairs
handled 4,181 cases of minors. In 1,101 of the
cases, the employer remedied the
defect found, and criminal charges were not brought against him. In 3,080 of
the cases, criminal
charges were brought against the employer. Complaints about
the employment of minors are also made to nongovernment organizations
like the
Federation of Working and Studying Youth and the National Council for the Child.
These organizations also distribute information
on the rights of employed minors
among young persons.
- Minors
who work for pocket money in occasional jobs, like waiting tables, are often
subject to a violation of their rights or the
employer’s failure to pay
them the minimum wage. Employers have even been known to demand that a minor
work for a certain
period without salary and then, in contravention of the law,
pay the salary based on tips rather than on the minimum wage. Voluntary
organizations claim that there is an inadequate number of inspectors and that,
consequently, the laws are not sufficiently enforced.
Further, these
organizations demand more severe punishment of employers who contravene the
law.
2. Sexual exploitation and sexual abuse
(a) The legal situation: definition of offenses
- Sexual
exploitation is addressed by the Penal Law 1977; sections 345354 of the Penal
Law deal specifically with the sexual exploitation
of minors. The law imposes
particularly harsh penalties on sexual contact with a minor, especially if
initiated by force, through
exploitation of a relationship based on control or
authority, or with a minor under the age of 14. The law reflects the belief
that
a child does not have full legal capacity to form free consent,
particularly when the offender is a relative or other individual
on whom the
child is dependent.
- Section
345 of the Penal Law prohibits sexual intercourse with a girl under the age of
14, even if the act is engaged in with her
consent, and prescribes a
particularly serious penalty (20 years’ imprisonment) for rape
(forced sexual intercourse) of a minor
who has not yet reached the age of 16.
Section 347 of the Penal Law imposes the same penalty for a person who commits
an act of
sodomy in similar circumstances. Section 346 of the law prescribes a
penalty of five years’ imprisonment for sexual intercourse
with a
minor between the ages of 14 and 16 who is not married to the perpetrator of the
act, even if it is committed with her consent.
Section 353 of the Penal Law
stipulates that a defendant may claim in his defense that the age difference
between himself and the
girl with whom he engaged in sexual intercourse does not
exceed three years, that the girl consented to the act, and that the act
was
committed in the context of a relationship based on mutuality, and not through
the exploitation of the defendant’s status.
A recent amendment to the law
applies the same criteria to sexual relations between males. A maximum penalty
of five years is imposed
on a person who has sexual intercourse with a minor
over the age of 16, even if she consented to the act, if the act involved the
exploitation of a relationship based on control, domination, educational
authority or supervision, or a false promise of marriage
when the offender is
already married. In contrast, section 347 of the law declares that an act of
sodomy with a minor over the age
of 14 is punishable by five years’
imprisonment, regardless of whether the minor consented to the act or the
perpetrator exploited
his authority or control over the minor. Sections 348 and
349 define as an offense an indecent act (that is, “an act [committed]
for
sexual stimulation or gratification, or out of contempt”) against a minor,
under circumstances that also apply to rape
and to consensual, unlawful sexual
relations. Section 351 defines sexual offenses committed against a minor by a
person who is related
to the minor as extraordinary offenses; it imposes
particularly severe penalties on these offenses.
- A
1998 amendment to the Penal Law eradicated a distinction that had formerly been
made between a boy and a girl minor regarding consensual
sexual intercourse.
The amendment set a standard age for prohibition of an act of sodomy or of
consensual, unlawful sexual intercourse:
In both cases, the prohibition applies
to a person between the ages of 14 and 16. Moreover, the amendment set a
minimum penalty
of onequarter of the maximum penalty for severe sexual offenses,
unless a court found exceptional grounds for reducing the
penalty.
- The
Penal Law 1977 prohibits physical, mental and sexual violation of a minor, and
prescribes a maximum sentence of seven years’
imprisonment for such
offenses, or nine years’ imprisonment if the perpetrator is responsible
for the child (sections 368B
and 368C). Special Section F1 of the Penal Law is
devoted to the harm of minors and helpless persons. The principles underlying
the provisions in this section of the law are as follows: First, an offense
against a minor is more severe than an offense against
an adult. Second, an
offense is considered more severe when committed by a person who is responsible
for a minor, than by one who
is not. Third, any person knowing of an offense
against a minor committed by a person who is responsible for that minor is
obligated
to report the offense.
- In
Israeli law, prostitution is not an offense, although pimping and soliciting are
offenses. A perpetrator of any of the above offenses
against a minor
is liable to seven years’ imprisonment. The law prohibits a person from
making an indecent proposal to a minor
who has not yet reached the age of 16, or
to a woman. Section 209 makes it possible to find a minor guilty of soliciting
or abetting
an immoral act.
- Recent
amendments to the Penal Law declared the following to be offenses against the
law: advertisement of prostitution services
provided by minors (section 205A);
claiming that a provider of prostitution services is a minor even if this is not
true (section
205B); and publication of pornographic material that involves the
body of a minor (sections 214(b) to 214(b3)).
- A
proposal to amend the Penal Law, aimed at combating the sexual exploitation of
minors and broadening the safeguards available to
them, would apply the
principle of extraterritorial jurisdiction to offenses of prostitution committed
against minors. It would
also restrict the protection of perpetrators offered
by double jeopardy (that is, it would allow an offense to be tried twice) for
offenses of prostitution and pornography committed against minors, to allow
perpetrators of such acts to be tried in Israel, even
if the acts were committed
in a country in which they are not considered offenses.
(b) Treatment and rehabilitation
- The
existing system of intervention in Israel for young people at risk or in danger
does not include specialized services for addressing
the prostitution or
commercial exploitation of minors, although a number of services for minors do
help minors who have been exploited
sexually.
- The
Ministry of Labor and Social Affairs helps youth in severe crisis situations
through the Service for Women and Girls and the Service
for Youth and
Youngsters, which locate and provide crisis intervention and emergency services
to young people who have difficulty
adjusting to or functioning in normative
society; often, such young people neither attend school nor work, instead
loitering and
roaming the streets, where they are susceptible to crime and
exploitation. The Ministry of Education operates youth promotion units,
which
work with young people who neither attend school nor work, or who attend school
sporadically. Treatment may involve individual,
family or group intervention,
alongside help integrating the young person into an educational or employment
framework. The Youth
Protection Authority operates residences for youth who
have been referred to them by a court order because they have broken the law
or
because they are exposed to severe distress that necessitates their being
removed from their home (under the Youth (Care and Supervision)
Law 1960). The
Youth Protection Authority also operates two frameworks for homeless youth,
which offer educational, therapeutic
and rehabilitative services. The Youth
Protection Authority and other services that refer youth to residences have
cited a lack
of space in these residences.
- In
addition, voluntary and public organizations field complaints, initiate
legislation, and recommend treatment policy for youth in
crisis (see Chapter
III). The commercial exploitation of minors is of great concern to ELEM Youth
in Distress, which helps minors
who have been sexually exploited for commercial
purposes; it also promotes research and initiates legislation in
this area. ELEM offers counseling and support services for youth in crisis
situations, and runs a “night patrol” that
locates children who are
wandering the streets. Together with JDCIsrael and the Ministry of Labor and
Social Affairs, ELEM is developing
a new type of residence for young girls in
distress. SHANI The Center to Combat Slavery and Exploitation in Israel, (the
Israeli
branch of the international organization I.A.F.), is primarily an
information and research center.
(c) The committee to examine the commercial sexual
exploitation of minors
- In
September 1996, following the first World Congress against the Sexual
Exploitation of Children, held in Stockholm, Israel’s
Ministry of Justice
initiated the first professional discussion of its kind on sexual exploitation
and prostitution among minors
in Israel, with the participation of
representatives from government ministries and voluntary organizations. At the
conclusion of
the discussion, the participants resolved to establish an
interministerial and interorganizational committee to examine this issue
and
make recommendations for policy directions.
- The
conclusions of the committee, submitted to the government in May 1997, were
based on the consolidation of partial yet diverse
information, which drew on
field studies (conducted by the staff of ELEM), discussions, and reports
received from various sources.
For the purpose of the committee’s work,
sexual exploitation was defined on the basis of article 34 of the
United Nations
Convention on the Rights of the Child, but was restricted to
commercial sexual exploitation that is, child prostitution, and trafficking
in
children for the purposes of prostitution and pornography.
- The
committee reported that it was unable to determine the exact number of minors
who were subject to commercial sexual exploitation.
Nevertheless, from the data
obtained, the following view of the phenomenon
appeared:
(a) Hundreds of the more than 10,000 girls treated by
the Service for Women and Girls have been exposed to various types of commercial
sexual exploitation, some of them heinous. Scores of young girls in outofhome
treatment (usually at a residence of the Youth Protection
Authority) have been
victims of sexual or commercial sexual exploitation at some time prior to their
admission to placement;
(b) ELEM staff on the “night patrol”
reported that, at any given time, about 50 boys are prey to sexual exploitation
in the city of Tel Aviv. On the basis of this figure, the committee estimated
that, at any given time, about 100 boys are subject
to sexual exploitation
throughout the country.
- According
to the committee’s report, most of the adolescent minor victims had
experienced the sexual exploitation during their
young childhood. Many had run
away or were turned out of their homes, and had come to Tel Aviv from the
suburbs, from poor development
towns, and from Arab villages; they work as
prostitutes to survive.
- The
committee uncovered several types of sexual exploitation, including prostitution
of minor boys and girls in striptease clubs and
massage parlors; street
prostitution; and collective exploitation of young girls within groups of teens
or street gangs, often to
finance drug abuse by
other members of the group or gang. Similarly, the committee expressed
concern over the relatively recent phenomenon of “importing”
women,
including young girls ages 1617, from Eastern European countries and the former
Soviet republics, for the purpose of prostitution.
- The
committee recommended establishing a public, professional forum to monitor these
phenomena and implement its recommendations in
the areas of legislation,
enforcement, education, information and prevention, treatment and
rehabilitation, and research. Specifically,
the committee recommended
implementing information and prevention programs among minors, as well as among
potential customers of
minors offering sexual services; increasing enforcement
against providers of sexual services who exploit minors, and against those
who
purchase these services; training professionals to locate and individually treat
minors who have been exposed to sexual exploitation;
and expanding the scope of
treatment services currently provided, for example by establishing additional
rehabilitative frameworks
for young girls and open shelters for young people who
live on the streets.
- The
recommendations were presented to a combined Knesset committee. At the request
of the Ministry of Justice, this forum prepared
a threeyear operative plan to
address commercial sexual exploitation of minors, which would receive
interministerial and interorganizational
funding. Initially, the plan will
cover activities to locate and identify minors who are being sexually exploited;
a hotline; legislative
activity; and acquisition and dissemination of
information. Later, the plan will involve developing methods of treating and
rehabilitating
minors who have been found to have been sexually
exploited.
- Israel’s
Police Force has recently made preparations to increase enforcement against
people who sexually exploit minors. Sexual
exploitation of minors was declared
a priority for all intelligence units working in the field: Intelligence
coordinators have been
instructed to collect information on pornography
involving minors, brothels in which minors are employed, and sites where
prostitution
involving minors takes place. The police have also begun closing
sexual emporiums where minors are employed and, in an expedited
procedure,
filing indictments against the owners of these establishments and against any
adults found engaging in sexual intercourse
with a minor.
(d) Protection of minor victims of sexual offenses in
criminal proceedings
- Israeli
law offers unique safeguards for minors who have been victims of or witnesses to
a sex offense, or to an offense committed
against them by their parent. In a
2000 amendment, these safeguards were expanded to cover some offenses against
the sanctity of
the body and extended to persons responsible for a minor who are
not his parents. However, these extended safeguards have yet to
be used in
full, due to organizational and budgetary problems.
(i) Minor victims of sex offenses or offenses committed
within the family
- Israeli
legislation specifically addresses sex offenses against a minor and offenses in
which a minor suffers injury within his family.
Section 368d of the Penal Law
1977 stipulates procedures for reporting the abuse of a minor or helpless
person, whether in the form
of violence, sex, neglect or abandonment. The
section imputes a general duty to report to any person who has grounds to
believe
that an offense has been committed against a minor by the person
responsible for him, and a special duty to report to those persons
who, by
virtue of their role, are privy to intimate information and are likely to know
details that would reveal the offender. The
latter include medical and other
professionals who provide treatment; all those who work in education; police
officers; psychologists;
the director or staff of a boarding school, other
residence, or treatment facility where the minor or helpless person is staying;
child protection officers; social workers; etc.. As the law imputes to these
individuals a more weighty obligation, the penalties
for breach thereof are
relatively severe.
- If
a report of suspected abuse is made to a child protection officer, and the
latter is satisfied that the report is wellgrounded,
he must inform the police,
and append his own recommendation for action or inaction. If the child
protection officer is of the opinion
that reporting the case to the police will
disrupt treatment of the family, he may bring the case to an “exemption
committee”,
which includes a representative of the police; the committee
will decide whether to authorize the child protection officer’s
decision
not to report the incident.
- Conversely,
and also under section 368d of the Penal Law, any information that reaches the
police directly concerning the suspected
abuse of a minor will be made known to
a child protection officer. Suspicion of injury to a minor within the family
may be brought
to the attention of the police by anyone a relative, a neighbor,
a teacher or physician. (Health and education services have their
own
procedures stipulating when and how suspicion of abuse must be reported.) The
police will not act before consulting with a child
protection officer, unless
immediate action is required. In any case, even immediate action does not
contravene the obligation to
inform a child protection officer of the case, so
as to prevent further harm to the minor during the investigation. It is the
police
who investigate such cases, and maintain contact with the minor’s
school, place of employment, etc., in order to take testimony,
question the
minor, or examine him medically without his parents’ knowledge.
Concurrently, the child protection officer collects
the information necessary to
treat the minor and his family.
- It
should be noted that the duty to report is unusual, as criminal law does not
generally impose a duty to report a crime that has
already been committed. The
duty to report has both practical and proclamatory importance. Many times
relatives, friends and neighbors
are torn between the desire to protect the
minor, and their feelings of obligation toward the perpetrator of the offense.
Professionals
often confront a conflict between their desire to help and protect
the minor, and their legal obligation to maintain confidentiality.
However, the
duty to report prevails over the duty of confidentiality prescribed in any law.
It thereby resolves this conflict
and carries an unambiguous message as to what
constitutes appropriate and correct behavior in the eyes of the law.
- To
increase the special protection of minor victims of a sex offense or an offense
committed within the family, the police have decided
that these offenses, and
the adults suspected of committing them, will be investigated by youth units,
which comprise speciallytrained
police officers (who also investigate minors
suspected of having committed an offense). However, minors under the age of 14
who
are involved in a sex offense (either as suspected perpetrator or victim),
and minors who are victims of a violent act committed
by the person responsible
for them, will be investigated by a youth interrogator who is not a police
officer (see below).
(ii) Investigation of minor victims of or witnesses to
offenses of sex or violence
- The
Evidence Revision (Protection of Children) Law 1955, which was recently
expanded, prescribes that minors under the age of 14 may
not testify concerning
sex offenses (socalled “offenses against morality”) or most violent
offenses (“offenses
against the person”) perpetrated upon their
body, in their presence, or which they are suspected of having committed, save
with the permission of a youth interrogator. Youth interrogators are Youth
Probation Service employees, social workers who are specially
qualified to
investigate minors and who are appointed by the Minister of Justice following a
recommendation by a committee headed
by a judge and comprising representatives
of the Ministries of Health, Education, and Labor and Social Affairs, and the
police.
- Under
the law, a minor will not be interrogated by a police officer, but by a youth
interrogator. When necessary, and in cases of
an offense committed within the
family, the minor will be interrogated in coordination with a child protection
officer. (In the
past, these interrogations were recorded on tape; recently, it
has become mandatory to videotape them.) Another person may be present
at the
interrogation, but only with the permission of the youth interrogator (section 5
of the law). The authorization of the youth
interrogator is required if the
minor must be present at or participate in a lineup, a medical examination, or
another event essential
to the investigation (section 7 of the law). A youth
interrogator is authorized to testify in court in place of a minor, and is
also
authorized to permit a child to undergo a medical examination and participate in
a lineup. A child may not be made to testify
if he was a victim of or
witness to an offense against morality or against the body, and his testimony is
not accepted as evidence
unless this is so authorized by a youth interrogator
(section 2(a) of the law). If a youth interrogator has permitted a minor to
testify, his testimony will be heard in the presence of the prosecutor, the
defendant and his attorney, the youth interrogator and
any other person the
court has allowed to be present (section 2(b) of the law). These stipulations
are meant to protect the minor
from further emotional harm, to ensure that the
investigation is professional, and to facilitate immediate referral of the minor
to treatment and assistance.
- In
the case of a minor (up to the age of 18) who will be testifying against his
parent who is accused of having committed a sex offense,
the court may direct
that testimony be heard in the presence of defense counsel only, and not in the
presence of the parent who is
the defendant, if it deems this is necessary to
protecting the minor from emotional anguish. The law was recently amended to
extend
this provision to testimony against a guardian or an adoptive parent
known publicly as the spouse of a biological parent.
- The
testimony of a minor concerning an offense against morality or against the body,
as well as any record of an interrogation that
is made during or immediately
after the interrogation by a youth interrogator, are admissible in court as
evidence, even though they
technically constitute hearsay evidence (section 9 of
the law). However, under section 11 of the law, a person may not be convicted
on evidence under section 9, unless it is corroborated by other evidence. Under
the law, exclusive discretion concerning the testimony
of a minor rests with the
youth interrogator, and not the court. The prohibition against a minor’s
testifying without the
permission of a youth interrogator is absolute. The Supreme Court has held
that a court has no discretion in this matter, nor may
it bypass the
prohibition; neither can the litigants or their counsel impose any condition on
this prohibition (Criminal Appeal 1880/91
State of Israel v. Anonymous
Defendant, P.D. 45(3) 137).
- Data
on investigations of offenses committed against minors. The police and the
Youth Probation Service publish data on minor victims
of offenses. In 1998,
6,228 files were opened concerning offenses against minors. In that year, youth
interrogators investigated
3,930 minors, 1,711 of whom were victims of a sex
offense, 313 of whom had witnessed a sex offense, and 1,640 of whom were
victims
of an offense committed in the family (see Table 72).
Table 72
Police files on offenses against minors opened in
1998
|
|
In the family
|
Outside the family
|
Total
|
6 288
|
1 507
|
4 781
|
Assault of a minor
|
3 610
|
1 011
|
2 599
|
Physical or mental abuse of a minor
|
519
|
205
|
314
|
Sexual offenses against a minor
|
2 159
|
291
|
1 868
|
Source: BenArie and Zionit, 1999.
- The
sex offenses to which minors were exposed included rape, consensual, unlawful
sexual relations, and acts of sodomy (8% of the
cases); indecent acts (36% of
the cases); obscene language and threats (5% of the cases); embraces and kisses
(17%); exposure (10%);
and other offenses (24%).
- The
Youth Probation Service also publishes data on the circumstances surrounding the
incident: In 45% of the cases, the perpetrator
of the offense was a stranger to
the child; in 37% of the cases the perpetrator was a friend, acquaintance or
neighbor; and in 19%
of the cases the perpetrator was a parent or close
relative. In about half of the cases, the incident was committed in the home
of
the victim or the perpetrator. Half of the sex offenses were onetime
incidents.
- A
large percentage (75%) of the victims of a sex offense investigated by the Youth
Probation Service are girls: of them, 45% are
under eight years of age, 30% are
ages nine11, and the remainder are age 1214. Fewer than 6% of the victims of a
sex offense investigated
by the Youth Probation Service are Arabs, even though
their percentage in the population is 20%. Professionals estimate that this
does not necessarily indicate a lesser prevalence of sex offenses in this
population, but merely a lower rate of reporting.
(iii) Testimony of victims in court
- Under
section 117A of the Criminal Procedure Law [Consolidated Version] 1982, if an
indictment is filed or an investigation made into
an offense to which the
Evidence Revision (Protection of Children) Law applies, a court may take the
testimony of a minor immediately,
at
the request of the prosecutor or the suspected perpetrator of the offense,
with the authorization of the youth interrogator. Testimony
is heard according
to the rules governing early testimony, which also apply to adults. The court
has the authority to discontinue
the minor’s testimony, if it believes
testifying is causing the minor emotional harm.
- Testimony
against a parent. As noted above, when hearing the testimony of a minor
concerning a sex offense committed by his parent,
the court may direct that the
testimony be heard not in the presence of the parent, if it believes this is
necessary to prevent emotional
harm to the minor (section 2A of the Evidence
Revision (Protection of Children) Law 1955). The court may order the
discontinuation
of the minor’s testimony if it forms the opinion, after
having heard the youth interrogator, that continuation of the testimony
is
likely to cause the minor mental anguish (section 2(c) of the law). In such a
case, the defendant or the prosecutor may request,
and the court may order, that
the youth interrogator reexamine the minor. However, the youth interrogator is
authorized to refuse
to ask all or some of the necessary questions, if he
believes these questions will cause the child emotional harm or anguish
(section
10 of the law).
- Testimony
against a stranger. Under section 2B of the Criminal Procedure Revision
(Examination of Witnesses) Law 1957, in a criminal
trial for a sex offense, the
court may direct, either on its own initiative or following a petition by the
prosecutor, either prior
to or during the taking of evidence, that the plaintiff
testify in the presence of the defense counsel but not in the presence of
the
defendant, if the court is convinced that testifying in the presence of the
defendant will harm the plaintiff or interfere with
his testimony; testimony not
in the presence of the defendant will be taken outside the courtroom or in some
other manner that will
prevent the witness from seeing the defendant. This
section of the law is general, and applies to any plaintiff in a sex offense,
whether minor or adult. The section expands on section 2A of the Evidence
Revision (Protection of Children) Law (see above). In
light of this expansion,
it is possible that a minor may testify not in the presence of the defendant
when the defendant is a stranger,
and not the minor’s
parent.
- Data
on the testimony of minors. In 1998, youth interrogators permitted 15% of the
minors for whom a petition to testify was made
to actually testify in court.
Twentyone percent of the minors for whom a petition to participate in a lineup
was made were permitted
to participate in a lineup. The percentage of
permits increases with age.
- Youth
interrogators indicate that they have two main grounds for refusing to allow a
minor to testify. First, they fear that testifying
will indeed harm the
minor’s emotional state, which in any case is usually wretched following
the traumatic experience he has
undergone. Many youth interrogators believe
that allowing a minor to testify in court and exposing him to the defendant and
to intensive
and at times aggressive crossexamination by defense counsel is
liable to cause his emotional state to further deteriorate; hence,
their
restraining minors from testifying in court is, they feel, justified.
Furthermore, since months and even years may elapse
before a case is heard on
its merits, requiring a minor to testify might cause him to recall or relive the
traumatic experience,
and hinder his emotional recovery.
- Following
extensive effort by youth interrogators, social workers, and educators, aided by
the media, the public has finally come
to understand that minors who file a
complaint with the police about a sex offense committed against them do not
usually appear in
court, as their
testimony is submitted by a youth
interrogator. Professionals believe this is one of the main reasons for the
significant increase
in the reporting of these offenses by the minors and their
families in recent years.
(iv) Minors over the age of 14
- There
is no special statutory protection of testimony given by a minor over the age of
14 who was a victim of or witness to a sex
crime, nor is there special statutory
protection of testimony by a minor (of any age) who was a victim of any other
offense (with
the exception, noted above, that both a minor and an adult
plaintiff may testify concerning a sex offense not in the presence of
the
defendant). A minor who gave testimony to a youth interrogator before reaching
the age of 14, and who has reached the age of
14 by the time of trial, may
testify without the permission of the youth interrogator. However, the Supreme
Court has held that
a statement made by a minor to a youth interrogator, as well
as the reports of a youth interrogator, will not be disqualified as
evidence
because the minor has reached the age of 14 (Criminal Appeal 1421/71 Mimran
v. State of Israel, P.D. 26(1) 281).
(v) Prohibition against publication
- Section
6 of the Evidence Revision (Protection of Children) Law prohibits the
publication of anything calculated to reveal the identity
of a minor who has
been investigated concerning contravention of the law or who has testified in
connection therewith, save with
the court’s permission. Section 24 of the
Youth (Care and Supervision) Law 1960 in its amended form (1998) prohibits
publication
of any information that will identify a minor who has been brought
before a court, or who is under the care of a child protection
officer, or who
has attempted or committed suicide, or that would attribute to him or his family
an offense or moral turpitude, or
that would reveal that the minor was a victim
of a sexual or violent offense or abuse or any other offense committed by the
person
responsible for him, or that would reveal his having undergone a
psychiatric examination or a test for AIDS.
(vi) Initiatives to improve the handling of minor victims of
and witnesses to sex offenses
- An
interministerial committee was recently established to review the status of
victims of offenses. This committee established a
subcommittee, whose task was
to propose a plan of action for helping minors who were victims of a sex
offense, as well as other types
of offense.
- This
committee has proposed a model of assistance for minor victims of offenses,
which would include a national and regional centers.
These centers would
consolidate and coordinate among the agencies involved in the assessment and
investigation of these victims
(the police, the
Youth Probation Service, medical personnel), so as to reduce their suffering
and that of their family. The centers would provide
immediate crisis
intervention, assistance during criminal proceedings, and information on
rights.
- The
National Council for the Child is establishing a project to monitor and support
minor victims of and witnesses to an offense,
and their families, who are
involved in criminal proceedings. The project will offer assistance through an
intermediary, either
a therapist or lawyer, who handles the flow of information
and prepares the minor for the legal proceedings. In 2000, the National
Council
for the Child and the police began implementing a joint project to help minor
victims at two police stations, one in Jerusalem
and one in Tel Aviv. The
National Council for the Child is also promoting policy and legislation that
will give victims status in
criminal proceedings that is, that will provide
them with government compensation and the statutory right to information on the
progress of proceedings, and that will establish an obligation to hear them
prior to a ruling concerning a plea bargain or early
release of the suspected or
convicted perpetrator. Similarly, the Attorney General’s Office has
proposed establishing a special
unit that would apprise victims of offenses
(including minors) of the progress of criminal proceedings involving
them.
- Recently,
a bill has been proposed that would grant victims the right to therapeutic
services and compensation.
(vii) Rehabilitation
- A
number of nongovernment organizations field complaints and provide immediate
help, treatment and rehabilitation to minors who have
been exposed to a sex
offense. These include ELI The Israel Association for Child Protection, which
serves children who have sustained
injury from their parents (ELI received 1,000
complaints of sexual assault in 1998); Meital The Israeli Center for the
Treatment
of Child Sexual Abuse, which serves minor victims of sexual abuse and
adults who were victims of sexual abuse in their childhood
(Meital
received 200 complaints from minors in 1996); and rape crisis centers
(which received 1,800 complaints from minors in 1998).
These and other
organizations cooperate with government ministries, initiate advertising and
information campaigns against child
abuse, and encourage people to report
attacks against minors (see also Chapters III and VII).
3. Trafficking in children
- Section
364 of the Penal Law 1977 stipulates that “A person who offers or gives
compensation for the permission to take custody
of a minor who has not yet
reached the age of 14, and a person who requests or receives compensation
for the right to take custody
of a minor is subject to three years’
imprisonment”. Section 367 stipulates that “A person who takes or
detains
a minor who has not yet reached the age of 14, by fraud or force or
enticement, or who receives or hides such a minor ... with the
intent of
depriving his parent, or guardian, or another person legally responsible for him
of his custody, is subject to seven years’
imprisonment”.
Trafficking in children is not known to exist in Israel.
4. Drug abuse
- The
possession and personal use of dangerous drugs is a criminal offense in Israel.
Furthermore, under the Dangerous Drugs Ordinance
1973, a person giving a
dangerous drug to a minor, or a person responsible for a minor who allows him to
possess or use a dangerous
drug, or a person who entices a minor to possess or
use a dangerous drug, is liable to 25 years’ imprisonment and a fine
(section
21 of the ordinance).
- In
recent years, concern has been expressed over the widespread use of drugs by
young people. Various agencies have increased their
efforts to develop
prevention and treatment programs for adolescent drug users. As noted, it is
the policy of the Police Force and
the district attorneys office, in cooperation
with the treatment and education systems, to allow minors who are involved in
drug
trafficking and abuse to be referred to treatment and rehabilitation
programs, rather than to the criminal justice system. The Drug
Prevention
Authority coordinates policy on this topic and, inter alia, operates information
programs and treatment and rehabilitation
services for minors involved in drug
abuse. Together with the civil guard, the Drug Prevention Authority is
developing an experimental
program that will recruit adult citizens to patrol
cities and locate youth who are not attending school and who are exposed to drug
abuse. The AlSam Association operates treatment and counseling centers for
youth involved in drug abuse. Treatment is provided
on an anonymous basis,
although the young person may ask that his parents or school become involved in
his treatment; the young person
may also participate in group therapy. The
Ministry of Education implements drug prevention programs in schools, as part of
the
“preparation for life” programs designed for adolescents (some
of which operate in cooperation with the Drug Prevention
Authority and AlSam).
Such programs aim to help adolescents cope with the changes they’re going
through, make independent
decisions, and stand up to peer pressure; they also
disseminate information about the ill effect of drugs. The Ministry of
Education
and the Ministry of Labor and Social Affairs also operate drug
prevention programs for youths who do not attend school. In addition,
periodic
advertising campaigns in the media, aimed at young people, explain the
deleterious effects of drug use.
- In
addition to the sanction against drug use, which applies to adults as well as
minors, Israeli law prohibits selling alcohol to
a minor or encouraging him to
drink alcohol (section 193A of the Penal Law 1977). This prohibition
applies to the seller, and not
to the minor. The proprietor or employee of an
establishment that sells alcoholic beverages to be drunk on its premises is
forbidden
to sell or serve these beverages to a minor and may not encourage him
to drink such beverages. The proprietor or employee of such
an establishment
may demand to see the identification, indicating age, of a patron who wishes to
purchase an alcoholic beverage;
if the patron refuses to produce said
identification, no alcoholic beverage will be served him. As this law is
frequently violated,
the police have instituted special patrols, with the
participation of citizens, to supervise such establishments and prevent them
from selling alcohol to minors.
- There
is no statutory prohibition against cigarette smoking, although a bill has been
proposed to this effect, and smoking is forbidden
within the bounds of most
educational establishments (see Chapter VIII).
5. Other forms of exploitation
Manipulative marketing to minors
- Following
recent incidents in which minors have been induced to sign documents obligating
them to purchase goods or services, the
Ministry of Trade and Industry has begun
preparing regulations designed to protect minors from such
exploitation.
C. Articles 22, 38 and 39 of the Convention - Children in
emergency situations
1. Children in armed conflict
(a) The age of military draft
- Although
the age of compulsory military recruitment under the Defense Service Law
[Consolidated Version] 1986 is generally 18 years
of age, persons over the age
of 17 may make a written request to be inducted into the armed forces with the
consent of their parents
(or one parent, if there is real difficulty determining
the opinion of the other parent) or guardian (see also Chapter
IV).
(b) Defense and rehabilitation
- Owing
to the constant security threat, the State of Israel devotes a significant
portion of its budget to the defense of its citizens
from belligerent acts
(e.g., constructing shelters, supplying means of protection against
chemical warfare). Furthermore, it takes
steps to help rehabilitate citizens
(including children) who have been injured as a result of a belligerent or
terrorist act. For
example, the Ministry of Defense and the National Insurance
Institute (the social security administration) have statutory authority
to pay
benefits to a soldier who was injured during military service and his family; to
the survivors of a soldier killed during
active duty (including, for example, a
benefit that covers the educational and other expenditures of war orphans); and
to a person
injured as a consequence of a hostile act and his family. Benefits
may also include inkind medical treatment, psychological treatment,
social
recreation and assistance with rehabilitation (including reintegration into
school or work). (See, for example, the Invalids
(Pensions and Rehabilitation)
Law [Consolidated Version] 1959, and the Fallen Soldiers’ Families
(Pensions and Rehabilitation)
Law 1950.)
- In
1997, there were 1,126 children living in Israel who had lost one parent during
active duty in the armed forces. In that year,
360 children received benefits
from the National Insurance Institute because they were maimed in a terrorist
attack.
- Kiryat
Shmona, a town close to the Lebanese border which has intermittently been
exposed to Katyusha rocket attacks, operates a community
stress prevention
center. The center develops preventive programs to be used in schools in the
north of Israel; trains professionals
(psychologists, school counselors, social
workers, physicians and nurses, teachers, etc.) in stress and crisis management;
and plans
and implements emergency intervention teams in schools and towns along
Israel’s northern border, which offer psychological
support during local
and national
crises (wars, terrorist attacks). The center has also conducted a number of
workshops on individual and group management of crisis
situations, and has
developed a model of selfhelp for use in remote towns and villages. The center
has trained professionals from
the former Yugoslavia, England, Northern Ireland,
Cyprus, Greece and Sweden.
2. Child refugees
- Since
its inception, the State of Israel has been and still is a haven for refugees.
Jews and their relatives may obtain Israeli
citizenship immediately upon arrival
in Israel (the Law of Return 1950; the Nationality Law 1952). Even today, more
than 50 years
after the State’s establishment, over half of its population
is composed of recent immigrants. During the 1990s, Israel absorbed
a large
number of immigrants among them 200,000 children primarily from the former
Soviet Union, and from Ethiopia. A large proportion
of these immigrants arrived
during a period of political and economic distress. New immigrant adults and
children are entitled to
special financial assistance, help with housing and
employment, and educational assistance which is meant to ease their integration
into Israeli society (see Chapters VIII and IX).
- The
State of Israel is a party to the Convention on the Status of Refugees. It is
also a party to the 1967 Protocol Relating to the
Status of Refugees. On a
number of occasions, Israel has offered asylum on a humanitarian basis, for
example to Vietnamese boat
people, members of the Moslem community of Bosnia,
and children injured in the Chernobyl disaster. Some of these children still
remain in Israel.
D. Article 30 of the Convention - Children belonging to
minority groups
- Israeli
law does not differentiate among children on the basis of race or religion, and
its Declaration of Independence is committed
to equality. Nevertheless, the
situation of the large minority of Arab nationals who reside in Israel in
education, welfare, health
and other areas differs from that of the Jewish
population. One group whose living conditions are particularly harsh is that of
the Bedouin, some of whom live in settlements or encampments that are not
recognized by the State and hence do not receive all of
the services to which
the general population is entitled. In recent years, the State of Israel has
striven to increase equality
and solve these problems. Its efforts, as well as
the gaps that persist, are set forth in Chapters VIII and IX.
- Another
group of children whose rights are often infringed is that of children whose
parents are not Israeli nationals. In particular,
the children of foreign
workers the influx of foreign workers, particularly illegal ones, has burgeoned
in recent years are at
a disadvantage. The National Health Insurance Law and
the Compulsory Education Law do not apply to these children. In actuality,
the
Ministry of Education enables the children of foreign workers to attend schools
in the State education system. Programs to ensure
that the children of foreign
workers receive medical insurance and treatment are currently being examined.
Another group of children
whose rights are liable to be infringed is that of
Arab children of “mixednational” couples: that is, one parent is
a
citizen of Israel, and the other is a resident of the West Bank or Gaza.
The status of such families is not always clear, and
this can place their
children at a disadvantage, relative to children who are Israeli nationals (see
Chapters V, VII, VIII and IX).
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- - - - -
[*] On 5 September 1999, matters of culture
and sport were transferred from the care of the Ministry of Education to that of
the Ministry
of Science.
[*] For a
discussion of the legal rules regarding civil and political rights in the
education system, see Chapter VI. The description
in this section focuses on
existing practices.
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