Specialized Victim Services for the Families of Missing and Murdered Aboriginal Women: An Overview of Scope, Reach and Impact

Katie Scrim and Naomi Giff-MacKinnon

Awareness of the needs of victims of crime has been growing across Canada since the first victim services programs were established three decades ago. The design and delivery of services, programs and legislation for victims in each province and territory have benefited from collaboration at the federal-provincial-territorial level towards shared objectives to increase the voice of victims in the criminal justice system. Over the last 20 years, there have been significant changes and adaptations in policy and legislation to meet the needs of victims being served and to provide more services for victims across Canada. In addition, capacity has increased to meet the specific needs of vulnerable communities, including child victims, sexual assault victims, and victims of hate crimes.

In the last five years in this evolving environment, there has been a growth of specialized police-based victim services that provide dedicated, culturally responsive assistance to family members of missing or murdered Aboriginal women. This article will provide an overview of how these programs are being delivered and identify the impact they have had on clients, investigators and police-family relationships.

Origins and Models: Specialized Victim Services for Family Members of Missing and Murdered Victims

Specialized victim services for family members of missing and murdered victims have emerged in several provinces across Canada. Many originated from special police units that were established to investigate a subset of missing persons/murder cases that involved vulnerable people, particularly those involved in prostitution. Investigation teams working with families of these victims, many of whom were Aboriginal, identified the need for culturally sensitive support and services.

Current programs employ a variety of service-delivery models, but all involve a dedicated, trained individual to liaise with police and families. In Saskatchewan, for example, there are three Missing Persons Liaison Officers who work out of the Regina, Saskatoon, and Prince Albert municipal police detachments, serving all families of missing persons in each of those cities. In Alberta, there is one Victim Services Coordinator for KARE, Footnote 1 the special investigation unit based in RCMP headquarters in Edmonton, who serves clients across the province where the missing or murdered person falls within the KARE mandate. In Manitoba, the Family Liaison Contact works with the families of victims who fall under the mandate of Project Devote, a specialized investigation unit focussed on investigating specific cases of missing and murdered persons in the province. In British Columbia, services for family members of missing women commenced in the early years of the 21st century. These specialized victim services are now being administered to family members of missing women under the Project Even-Handed Joint Task Force, a policing unit that includes a group of specially trained victim service workers and is investigating missing women from the Downtown Eastside of Vancouver.

While these four programs operate differently, their mandates are similar in significant ways. Footnote 2 They all provide families with information about the case and the criminal justice system; they provide emotional support and crisis response; and they provide referrals to community supports and services (counselling and other forms of practical assistance). Some also provide court support and accompaniment, as required. The majority of their clients are families of missing or murdered Aboriginal women, and all the programs offer services and assistance that is culturally sensitive and responsive to the needs and concerns of families. The shared goal is to provide dedicated assistance to the family members and ensure they have access to information and services to assist them in healing.

The Interviews: The Impact of Family Liaison Coordinators and Missing Person Liaison Officers

In order to gather information about the operation and impact of these programs, the Research and Statistics Division, Department of Justice Canada, interviewed a Family Liaison Coordinator (FLC) or Missing Person Liaison (MPL) and a police investigator from British Columbia, Alberta, Saskatchewan, and Manitoba. The FLC/MPL and police member from each respective province were interviewed jointly. Interviews were conducted by telephone and followed a semi-structured interview guide. The purpose of the interviews was to highlight the types of services provided, the types of clients served, and the impact that these services have had on the families from the perspective of the service providers. The interviews also focussed on the FLC/MPL’s impact on the police investigation, as well as police/family relationships.

Clients of these victim services were not interviewed for this research. The absence of their point of view means that the findings presented below are missing an important perspective. Nevertheless, the findings do provide insight on the types of services that are emerging in Canada to recognize and respond to the needs of family members of missing or murdered Aboriginal women.

Findings

Dedicated liaison positions between police and family members build trust and understanding.

The use of a dedicated person to liaise between police and family is a relatively new approach to victim services that has been positive and significant in many ways. Analysis of the interview data indicate that their impact so far has been overwhelmingly helpful, both for clients and for police investigators. The most important role of the FLC/MPL mentioned during the interviews was the liaison function between the family members and police. This role was often referred to as a “conduit” between police and families or a position that “bridged the gap” between families and police.

All interviewees reported that the development of trusting relationships between the FLC/MPL and the families was, over time, decreasing the level of mistrust that Aboriginal victims feel when in contact with law enforcement. This development of trust has been driven by the warm, understanding, and non-judgemental approach taken by the FLC/MPLs in their efforts to assist families. Since the FLC/MPLs are not police officers, but civilians, they can connect directly with families outside of the law enforcement context. Interviewees noted that the FLC/MPLs may be helping to repair relationships between Aboriginal clients and police and, to a degree, between police and the larger Aboriginal community.

Consistency is important in meeting the needs of families.

Both police and the FLC/MPLs noted the importance of having a dedicated individual as a liaison with whom families can connect. Police units in many parts of the country operate on the basis of rotation through units. Police members spend limited periods in any one unit before moving on to another, which can result in high turnover of members and inconsistency in the investigational contact for the family members of victims. This can be troubling for family members of victims when investigations can span several years, and even longer when the victim is missing. Since the inception of each program, the FLC/MPL in each jurisdiction has been the same person throughout the investigation, which was described as a major comfort to clients.

FLC/MPLs permit the investigator to investigate knowing that family members have the support and information they need.

Another major aspect of the liaison role of the FLC/MPL is to provide information to client families about the investigation. For this reason and others, the FLC/MPL in Manitoba, Saskatchewan, Alberta and British Columbia have been described as invaluable members of the investigation team. The majority of police interviewed recognized the importance of staying in contact with victims’ families and to devoting the time to meet face-to-face with families, providing support, and listening to their worries and concerns. However, they also noted that they do not always have the ability to carry this out and believe that the FLC/MPL plays a critical role. With the FLC/MPL taking responsibility for the majority of communications with the victim’s family (providing information and updates on the case as well as receiving and responding to inquiries from family members), police can concentrate on the investigation.

One police member explained the importance of the “first 48.” This term refers to the first 48 hours of an investigation, which represents the most crucial period for collecting evidence and developing leads in a case. Police indicated that this is a time when they as investigators need to be able to act and react quickly and they may not be at liberty to share any information with family members.

This is also a crucial time for family members, who are often in great need of information. When information or case updates are not available, it is just as important for family members to know. FLC/MPLs provide all available information to families on behalf of police and ensure that family members are not left wondering about case developments. In addition, interviewees noted that this continuous flow in communication provides family members with reassurance that their loved one’s case is being looked after, that he/she has not been forgotten about, an important comfort for families.

FLC/MPLs increase family members’ awareness about investigation policies and process.

Another significant impact of the FLC/MPLs’ role as liaison between police and families is the increased awareness among family members about the police investigation process. Police follow certain policies, practices and routines when investigating a major crime, but civilians are rarely privy to how the investigation process unfolds. When a loved one has gone missing or has been murdered, a lack of communication from police combined with a lack of understanding of the investigation process generally can lead family members to assume that not enough is being done or that their loved one has been forgotten about; ultimately, it can affect their trust in the work of police. The FLC/MPL addresses this before it becomes a concern by apprising family members of the investigation process: the timelines, the necessary policing practices, and the reasons for the intermittent lack of updates and information. By providing this information directly to the family, the FLC/MPL provides reassurance that the case is progressing and that the missing person has not been overlooked. Both police and FLC/MPLs interviewed agreed that this seemingly simple function has gone a long way in building confidence and trust in police among the victims’ families, particularly among those families who were distrustful of police in the past.

FLC/MPLs increase awareness about the experiences and needs of victims’ family members.

Another major impact of the FLC/MPL programs is raising awareness about the needs of families of missing and murdered persons and, in doing so, informing and improving policies and practices. In particular, FLC/MPLs are educating police investigators about the needs of victims’ family members. Some police indicated that the increased knowledge and awareness is making them more sensitive to families’ needs and that they have adapted their approach to witness and family management. As one investigator indicated, in the past their unit tried to restrict family contact to a single individual. This meant that all case communications and updates flowed through one family member. Via the FLC/MPL, police began to understand that information was not always reaching other family members through the single contact (for various reasons, including the individual simply being apprehensive about sharing the information with other family members). This awareness has led to a change in police communication practices.

Strengthened relationships lead to cooperation.

Police investigators pointed out that the liaison work of the FLC/MPLs may also be contributing to the disclosure of pertinent information from family members. Both police and FLC/MPLs identified the strong relationships established through trust and understanding between the FLC/MPLs and families, including the “street family.” Footnote 3 These relationships may provide an avenue for family members to share new information pertinent to the investigation.

This information has come from families in several ways. Some FLC/MPLs noted that, in their regular meetings with family members, clients may share some piece of information about the victim that may be relevant to the case. At other times, the victim’s “street family” may provide information to the FLC/MPL. In addition, those interviewed also mentioned that family members are often more forthcoming and cooperative with police after dealing with the FLC/MPL. For example, some police investigators noted that family members have become more comfortable going directly to them with information and, by the same token, may be more cooperative with police in providing DNA evidence and answering questions.

There is a need to build capacity and develop expertise.

Those interviewed indicated that this area of specialized victim services is relatively new and insights into best practices and standards of care are evolving, as is expertise. All those interviewed indicated that the needs of family members of missing persons differ in many ways from those of other victims. They may need long-term counselling, for example, something that may be difficult to obtain. Child care for the children of victims is another identified need. In the absence of appropriate care, children may be removed from the home and put under the care of child-protection services. The same may be true for the children of family members who are predisposed to mental health or addictions issues. The stress of a missing/murdered loved one can trigger these pre-existing problems, and the person may then need help not only for themselves, but also for their children. The FLC/MPLs are building a repertoire of knowledge of the needs of these clients and are working to establish connections to the supports and services that will fill these needs.

There is a need to reach out and share knowledge.

Part of the mandate of many FLC/MPLs is to promote awareness of the needs of their clients and to share expertise with non-specialized victim service providers across their jurisdiction. Services can be limited in rural and remote regions of any province. In some areas, victim services are staffed by volunteers who may not have the training that those in larger cities have. Victim service providers in these remote areas may have less experience dealing with certain types of victimization and the needs of family members (in the case of homicide, for example). Many FLC/MPL programs are designed to help develop best practices and policies that can be shared with service providers in all towns and communities in order to ensure consistent services for those in need. In some cases, the FLC/MPL will travel to these areas to provide training.

The FLC/MPL is also sometimes considered “the face of police” for many families and, in some circumstances, for the entire community. The FLC/MPL attends family gatherings, community healing activities, and other community events with police members or on their own. Because the FLC/MPL is often seen as an extension of police, their presence at such events serves to demonstrate to the families and the community that the police regard the event – and those participating in it – as important. Police who were interviewed emphasized the importance of having an actual police presence at these types of events, but when this is not possible, they appreciate that the FLC/MPL represents them.

There is a need for inter-jurisdictional linkages and connections.

The FLC/MPLs serve families within their respective cities/provinces, so it is important to be aware of what services are available across their jurisdiction and to establish connections with those agencies and service providers in order to ensure that clients are obtaining the supports and services they need. The FLC/MPL also needs to be aware of services available in other jurisdictions for cases when the family of a victim resides in another province or territory. Networking is an essential part of the job, and it requires establishing connections with service providers in other parts of Canada and with FLC/MPL counterparts in other parts of Canada. Those interviewed all indicated that they have worked with their counterparts in other jurisdictions, or at least know them. The connection is important not only in terms of being able to coordinate services for families but also for sharing best practices in how to support these families. By maintaining a network of communication and resources among other FLC/MPLs and victim services across Canada, FLC/MPLs are working to increase access to services for families no matter where they reside in the country.

FLC/MPLs: A Model of Advocacy for Victims’ Families

The concept of a “victim advocate” Footnote 4 is an emerging model of specialized victim services in Canada, which varies in form according to the needs of victims and clients being served. For example, in the case of Children’s Advocacy Centres (CACs), a specialized model of service delivery for child and youth victims of violent crime that is relatively new to Canada, the victim advocate plays a critical role in serving the needs of these highly vulnerable clients and their families. Evidence to date suggests that the victim advocate has a positive impact as a central point of contact for victims and their families, and one which ensures that their specific needs are being met. Footnote 5

The FLC/MPLs also serve as advocates for the victims’ family members and they will put the needs and experiences of the family at the front and centre. For example, the FLC/MPLs recognize that every family is unique and so are their struggles. Given this, the services and support provided are individualized to every family and to every family member. Similarly, they can make referrals to counselling agencies, to elders, and to support groups, as well as to any other services which family members may need, such as child welfare, transportation, or addictions counselling. FLC/MPLs are also aware of the various types of financial resources that may be available to family members, such as compensation or funding to assist with travel to court, and they are able to help clients navigate the application process. FLC/MPLs may also assist families with their own investigation efforts by helping them get access to computers, printers and photocopiers to create tools or social media pages that will bring community attention to their missing loved one. These small acts can be empowering for family members and friends.

The FLC/MPL’s role is not restricted to helping family members. Services may also be provided to non-family members, including the victim’s “street family.” While grieving is not restricted to immediate family, some of those interviewed mentioned that friends and extended family of the victim may not feel comfortable attending the same counselling sessions or family gatherings as the immediate family. The FLC/MPL can refer these people to other supports; in one instance a coordinator helped the friends of a missing person to set up their own support group.

As an advocate for the victim’s family, one of the FLC/MPL’s most important tasks is to ensure that family members do not “fall through the cracks.” This means that he or she must be available to client families when they need support or simply to be heard. FLC/MPLs mentioned that they commit a significant amount of time and effort to ensure they are responsive to the family members’ needs. They meet the client at times and places that work for the family and they provide a caring and listening ear to families for both short- and long-term conversations as needed, in support of their clients.

Interviewees mentioned that, in some circumstances, family members may be dealing with other traumatic life issues that are compounded when a family member goes missing or is murdered. Many clients have addictions and mental health issues or are involved in the criminal justice system as the result of issues or events unrelated to the missing or murdered loved one. FLC/MPLs take these realities very seriously, and their multifaceted efforts to support clients illustrate the dedication they bring to their position. In one example, a client with pre-existing mental health issues had attempted suicide. The FLC/MPL visited that client in the hospital and advocated for his cultural needs to hospital staff.

Best Practices

While the FLC/MPLs are constantly developing capacity and expertise, those interviewed were able to identify some best practices they have learned to date. Among the most important were:

This last point was noted as especially important to ensure that the FLC/MPL receives information about criminal incidents as soon as possible: for example, when remains that may be the victim’s are found, it is important to be able to contact the victim’s family immediately – whether or not the remains turn out to be the victim’s. This is so family members do not learn of the discovery through the media.

Next Steps

The FLC/MPLs noted the importance of establishing and maintaining a network of counterparts in other jurisdictions. This is important for coordinating services and supports for victims’ family members who live in different provinces, but also for sharing expertise and best practices and building awareness of the needs of victims’ families. Finally, most of those interviewed noted that an expansion of these specialized services into the more rural and remote areas of their respective provinces would go a long way towards ensuring that the needs of all victims’ families were being met.

Conclusion

This emerging area of victim assistance, sensitive to the context of violence against Aboriginal women and the needs of their surviving family members, is proving to be a much-needed and important response to the concerns and needs of families and investigating police officers.

While this overview was limited to the opinions of the victim service providers and police investigators interviewed, the consensus was that these specialized victim service programs are helping to meet the very unique needs of family members of missing and murdered victims. Police are finding the support beneficial, since it allows them to focus their time on investigation, reassured that the families are getting the support and information they need. The programs provide families and clients with timely information and dedicated, responsive assistance. All those interviewed agreed that these specialized victim services are having a positive impact on clients. All the FLC/MPLs were clearly dedicated to serving and supporting clients, which ultimately translates into a higher level of care for victims’ families.

References

Naomi Giff-MacKinnon is Senior Policy Analyst in the Policy Centre for Victim Issues, Department of Justice Canada, in Ottawa.

Katie Scrim is a researcher with the Research and Statistics Division, Department of Justice Canada, in Ottawa. She works on Northern and Aboriginal justice issues and has been developing the Division’s GIS-based mapping capacity.