Change for Children Strategy

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The child safety system in Tasmania

Change for Children acknowledges that a whole of system change is required to keep children safe from child sexual abuse. Children and young people in Tasmania interact with various services and individuals daily, including government and non-government services. These interactions form a complex child safety system that aims to protect and support children. The system includes the regulatory, criminal or civil justice systems, redress options, health systems, community service organisations and support networks. Figure 1 details this system.

The Tasmanian Government is committed to improving this system, ensuring that all children are safe, supported, and can thrive. A successful, strengthened child safety system will be reflected in reduced instances of child sexual abuse, better access to support services, improved communication between agencies, and increased community trust in the system.

To achieve this, we plan to strengthen collaboration across all levels of government and community service organisations. We recognise all children and young people and victim‑survivors have unique needs and the right to accessible and equitable services. Change for Children emphasises involving children and young people, and victim-survivors to ensure that they are listened to and participate in decisions that impact them.

Key services involved in this system include child safety services, out-of-home care providers both within and outside of government, health services including mental health services, police, and legal authorities, among others.

Implementing the Commission of Inquiry recommended key reforms for safer institutions is one of the ways that the Tasmanian Government has committed to changing the system.

The Commission of Inquiry identified key reforms for safer institutions for children and young people. Change for Children recommits to these reforms including:

• Creating a new, strengthened regulator and advocate for children and young people’s rights and safety to ensure focused and accountable delivery of child safety reforms. All children and young people will have access to consistent, robust safeguards and support systems, enabling them to thrive in safe environments.
• Introducing a more coordinated and statewide response to child sexual abuse and harmful sexual behaviours to ensure that resources, services and support systems are aligned, comprehensive, and accessible. We want a collective and evidence-based approach that keeps children and young people and victim-survivors at the centre.
• Increasing participation of children and young people, victim-survivors and service providers in policy design and delivery to ensure that policies and services are responsive and reflective of the needs and experiences of people who engage with them. We want an inclusive and empowered Tasmania where children and young people’s rights and victim-survivors' wellbeing are at the forefront of decision-making and service provision.
• Introducing stronger mechanisms for institutions to protect children from adults who pose a risk to them, and ensure that institution sare environments where children are safe from harm, and victim-survivors are supported and believed.
• Showing greater care, compassion and investment in protecting and healing marginalised children to ensure that diverse and unique needs are met in environments where they are valued and supported.
• Ensuring staff and volunteers working with children have the knowledge and skills they need to provide safe environments where children and young people are safe from child sexual abuse. By equipping adults with the tools to prevent, identify and respond to child sexual abuse, we can build child safe cultures.
• Valuing and strengthening the skills and expertise of those working in the child safety and youth justice systems to ensure that professionals are equipped to effectively address the diverse needs of all children and young people. A well-supported workforce will prevent harm, support victim-survivors, and promote safety and wellbeing for all children and young people.
• Monitoring reform to ensure that protective measures and systems designed to safeguard children are effectively implemented and continually improved. Tracking progress and identifying gaps ensures that reforms are making the changes needed to keep children safe.

The following section outlines our vision, objectives, long-term outcomes and guiding principles that will guide our efforts to keep children in Tasmania safe from child sexual abuse. It builds on the lessons from the Commission of Inquiry and responds to the extensive and wide-ranging consultation on the draft Strategy.

Change for Children

“Every child needs to be protected, to have the right to feel safe and the foundations to be safe if they are to move forward and thrive in our society. It is the absolute and sole responsibility of every one of us adults to ensure that this happens, and therefore we have to make change.”

— Victim-survivor, Laurel House consultation survey participant.[11]

Vision

This is the aspirational statement that describes the desired future state and is the ultimate aim of this strategy.

In Tasmania, all children and young people are protected and safe from sexual abuse, and all victim-survivors are believed and supported. They are enabled to thrive, and their wellbeing is protected in all places they live, learn, play and work.

Objectives

These are the specific goals we need to work towards, and measure over time, to achieve the vision.

1. Children and young people feel listened to, protected, and are aware of who is responsible for their care, have a voice in decisions affecting them, and are encouraged to share their experiences.
2. Victim-survivors know who to approach for support, are listened to and believed, have access to diverse support options, and see their disclosures contribute to the safety of others.
3. Community organisations receive funding that supports quality services, collaborate with government and other organisations, uphold child rights and safety principles to prevent abuse from occurring and share data responsibly.
4. Community members are educated to prevent and recognise signs of abuse, including how to respond and report.
5. Government commits to significant and ongoing cultural and systemic change to promote accountability and transparency, to protect the rights of children.
6. Staff members and volunteers in government and community organisations commit to listen to and respect children, collaborate to ensure safety, understand the importance of reporting concerns, value victim-survivors' perspectives, and report any concerning behaviour.

Long-term outcomes

These are the measurable results that this strategy is aiming to achieve that were identified in the Theory of Change.

"Rather than having a focus on government and non-government – this is about a whole of community response."

— Workshop participant, Culturally and Linguistically Diverse consultation workshop

1. All children and young people in Tasmania are supported to be safe from child sexual abuse.
2. Everyone recognises and is empowered to act on systemic and direct risks to child safety.
3. Child sexual abuse is prevented through a whole of system effort and approach.
4. Adults that commit or enable child sexual abuse are held accountable.
5. Organisations are accountable and, where failures have been identified, engage in genuine processes to restore trust, safety and agency.
6. Victim-survivors and their families are respected, valued and receive the support they need at all stages of their lives.
7. Children and young people have developmentally appropriate and respectful peer relationships.
8. All children and young people can meaningfully participate in Tasmanian communities and decisions which affect them.
9. A skilled, sustainable, and resourced workforce acts to prevent and respond to child sexual abuse across all relevant sectors.

Guiding Principles

These are the core values that will inform and guide the implementation, and evaluation of this strategy.

“Since most sexual abuse of children happens within the family or extended family, the government needs to have sufficiently trained people to handle this and prevent the family going into 'close-down' mode and 'pretend it didn't happen mode' in order to protect the family image.”

— Survey respondent, Sexual Assault Support Service consultation survey[12]

Tasmanians are committed to community-wide efforts to protect children's rights and prevent child sexual abuse. The goal is to prevent and respond to abuse in a trauma‑informed and victim-centred way, as described by victim-survivors and children and young people.

The focus for this strategy is to outline our long-term whole-of-Tasmania response to prevent and respond to child sexual abuse in all settings, including:

• in organisations and government agencies (institutions)
• in communities by family members, acquaintances, or other adults
• in communities by other children and young people
• online.

Our approach is underpinned by the following guiding principles:

1. Child safety in Tasmania is everyone’s responsibility, and everyone has a role in preventing child sexual abuse.
2. The inherent rights of children must be recognised and upheld in all settings.
3. Children and young people and victim-survivors must be acknowledged and respected as experts in their experience.
4. Equity must be upheld for the diversity of children and young people and victim-survivors and their intersecting experiences of disadvantage must be acknowledged and respected.
5. Families hold a key role in promoting the safety, wellbeing and rights of their children and young people and supporting families in need who may be at greater risk.
6. Local governments and community organisations already play a key role in upholding child safety and wellbeing, so are essential partners in building and maintaining child safe communities and are well-placed to engage early with children and their families.
7. All system components are integrated, including the child safety system, to prevent and respond to child sexual abuse effectively.
8. Government is transparent and accountable in upholding children's rights, centring victim-survivor experiences and actively engaging with victim-survivors about their experiences.
9. Evidence, data, research and evaluation informs our policies, programs, actions and reforms.

Upholding children's rights

“When it comes to circumstances where the child thinks it’s their fault for whatever’s happened, you need to do your best to make sure they understand that it’s not, no matter the circumstance, you know, nothing is ever going to be the child’s fault in that sort of circumstance.”

— Participant, Commissioner for Children and Young People, 'Start the Conversation'[13]

In Australia, children’s rights are recognised through legislation at both national and state levels, aligning with the principles of the United Nations Convention on the Rights of the Child (the Convention), to which Australia is a signatory. In Australia, these articles serve as a crucial framework, guiding legislation and initiatives aimed at protecting our children and young people from all forms of sexual abuse and exploitation. These rights are subject to state laws which shape children's rights in practice (see Appendix 3).

The four general principles that underpin how the Convention should be interpreted and put into practice are:

• Participation: Children have the right to express their views freely on matters affecting them and to have those views respected.
• Right to survival and development: Children must be allowed to survive and thrive physically, emotionally, socially, and intellectually.
• Non-discrimination: All children have equal rights without exception.
• Best interests of the child: The child’s wellbeing and safety are the primary consideration in all actions concerning them.

We listened to young people from the Youth Network of Tasmania and Premier's Youth Advisory Council in December 2024 about what upholding their rights means to them. Their thoughts are captured below.

Rights to participation means to:

• express themselves, without fear of judgment: to be listened to and taken seriously, and to have their concerns acted on.
• influence decision-making on things that affect young people.
• access accurate information that is relevant.
• give feedback: express it and have it listened to.
• share views with a trusted adult.

Rights to survival and development means to:

• receive love and support: from family first, and if that fails then networks. If that fails, the State needs to get involved.
• be secure and safe: people should always feel safe within their school, home, online, out in the community and workplace. Everyone should be protected from violence and abuse.
• have access to services.

Rights to non-discrimination means:

• everyone should have the same rights no matter what their background.

Rights to the best interests of the child means to have:

• freedom of self-autonomy to make decisions about their own lives.
• adults that are willing to listen and take action to ensure the safety and wellbeing of children and young people have a place to express their needs.
• access to an independent person to talk to when in need of support.

Since Australia ratified the Convention in 1990, there has been a significant shift toward recognising that children possess inherent rights and are entitled to protections to ensure their safety and wellbeing. These developments point to changes in community attitudes and awareness of child sexual abuse and the rights of children over time – from minimal awareness, where child sexual abuse was ignored or ‘covered up’, toward the growing understanding of child sexual abuse as not only a criminal issue but a societal one requiring collective action.[14]

The Convention outlines 54 specific protection rights for children. Change for Children focuses on upholding Article 34 which focuses on protection from sexual abuse:

Article 34 mandates that all signatory countries, including Australia, undertake all appropriate measures to prevent the exploitation and abuse of children in all its forms.

The Tasmanian Government’s acceptance of all recommendations made by the Commission of Inquiry represents a significant commitment to protect and uphold the rights and safety of children by preventing, identifying and responding to child sexual abuse.

Implementing this strategy and other intersecting reforms and policies will strengthen children’s rights to ensure their safety and participation. Some of the key reforms underway to uphold and protect children’s right to safety include:

• establishment of a new Commission for Children and Young People, supported by new Commissioners and advocates for children and young people’s rights and safety (recommendation 9.38).
• introduction of Tasmanian Child and Youth Safe Standards and Universal Principle to improve practices and standards to safeguard children in organisational settings (see page 62 for more information on how the Standards align with the Convention).
• development of empowerment and participation strategies for children and young people in vulnerable settings such as out-of-home care and youth detention (recommendations 9.6 and 12.8).

This strategy is also informed by the Tasmanian Child and Youth Wellbeing Strategy: It Takes a Tasmanian Village. Change for Children emphasises the 10 Principles co‑designed by Tasmanian children and informed by the Convention.

Tasmanian Child and Youth Wellbeing Strategy, It Takes a Tasmanian Village principles:

1. Acknowledging that the family and extended family of the child has the primary responsibility for the care, upbringing and development of their child/children and to provide them with information to access available services which will assist in providing a nurturing environment for their children.
2. Providing opportunities for Tasmanian Aboriginal children and young people to connect to community and country and working in partnership with Tasmanian Aboriginal people to ensure life outcomes for Tasmanian Aboriginal children and young people are equal to all Tasmanian children and youth.
3. Understanding the varying relationships that influence each child and young person we work with.
4. Providing the opportunity for, and supporting, children and young people to have a voice in decisions that affect them.
5. Providing a range of education and training opportunities to ensure children and young people can participate in life-long learning and employment.
6. Recognising the individuality of children and young people and treating them without discrimination and with respect.
7. Providing children and young people opportunities to explore topics that interest them in a manner that supports learning and reduces anxiety.
8. Providing a range of recreational and social opportunities for children and young people in the areas in which they live.
9. Fulfilling our preventative and statutory responsibilities against all forms of violence against children and young people.
10. Supporting positive mental and physical health outcomes for children and young people in a way that aligns with the Government’s Tasmania Statement on Working Together for the Health and Wellbeing of all Tasmanians.

Why do we need a strategy?

What is the prevalence of child sexual abuse?

“Abuse today is very social media, it’s very faceless”

— Young male participant, Commissioner for Children and Young People Tasmania ‘Start the Conversation’[15]

Child sexual abuse is more prevalent than many of us realise. Recent data shows that child sexual abuse is widespread among Australians. It is estimated that:

• Over 1 in 4 Australians aged 16 years and over have experienced child sexual abuse (29 per cent).
• More than 1 in 3 girls experience child sexual abuse.
• Almost 1 in 5 boys experience child sexual abuse.
• Females are nearly twice as likely to have experienced child sexual abuse than males (37 per cent compared to 19 per cent).
• Most victim-survivors of child sexual abuse said it happened more than one time (78 per cent).
• On average it took victim-survivors of child sexual abuse 24 years to disclose the abuse to anyone.[16]

Tasmanian data on child abuse reported to police shows that the number of victims of sexual abuse under 18 years is rising, with 260 offences in 2014 compared to 313 in 2023.[17] We know these statistics under-report the extent of child sexual abuse, which often goes undisclosed for many years.

Research and data show that child sexual abuse does not only happen in institutions and most occurs outside of this context. In a study of people who experienced sexual abuse before they were 15 years old, 79 per cent were abused by a relative, friend, acquaintance or neighbour.[18]

Abuse may be in-person or online. When online, children are at an increased risk of being exposed to harmful content, unwanted contact from strangers, grooming and sextortion.[19] Reports of online child sexual exploitation have increased by over 200 per cent since 2018.[20]

What do we believe about child sexual abuse?

“Supporting communities to be empowered so that children have a sense of autonomy in speaking out.”

— Workshop participant, Culturally and Linguistically Diverse consultation workshop

The Government Response to the Commission of Inquiry included a commitment to over-sample Tasmanian data in the 2023 Australian Child Sexual Abuse Attitudes, Knowledge and Response Study.[21]

Tasmanian respondents to the survey demonstrated high levels of knowledge and awareness about child sexual abuse as a prevalent and important social issue:

• 100 per cent had heard of the term child sexual abuse
• 64 per cent had heard the term ‘harmful sexual behaviour’ (significantly higher than the national average), and
• more Tasmanians correctly recognised residential settings as the riskiest locations for child sexual abuse than other jurisdictions.

A significantly higher proportion of Tasmanians reported that they were likely/very likely/certain to know someone who was sexually abused as a child (81 per cent) or had received a disclosure of child sexual abuse from an adult (50 per cent) than other jurisdictions. 88 per cent agreed that there are things we can do as a community to reduce the number of children sexually abused.

However, the data showed that there are still some gaps in Tasmanians’ knowledge and ability to respond:

• 50 per cent were not confident or only slightly confident they could recognise the signs a child had been sexually abused, and
• only 54 per cent reported that they know what to do to keep children safe from sexual abuse.

Some respondents held problematic views towards child sexual abuse victims, and although not widespread the Tasmanian data showed that:

• about one in five (22 per cent) did not agree that children should always be believed if they disclose that they are a victim of sexual abuse, and
• almost one-quarter (24 per cent) considered (agreed/strongly agreed) that older children have a responsibility to actively resist adults’ sexual advances.

What is our approach?

“Where do we begin? I personally feel it will take a complete overhaul of the current systems (that I truly believe don't work), from the top to the bottom and from the bottom to the top...”

— Participant, Sexual Assault Support Service consultation[22]

Child sexual abuse is a complex issue that needs a comprehensive and coordinated response. It is a challenging societal issue with far-reaching consequences for the health, wellbeing, and development of children and young people and communities. Importantly, child sexual abuse is preventable.

This strategy incorporates a combination of approaches to address the complex nature of the problem with children and young people and victim-survivors at the centre. These approaches inform policy responses, the framework and place-based initiatives, as seen in Figure 2.

Systems thinking expands the range of choices available for solving a problem by broadening our thinking and helping us articulate problems in new and different ways. Systems thinking methods and tools inform the underlying policy approach for the strategy and have been used to develop the Theory of Change, objectives and principles for this strategy and identify the underlying causes.

This strategy incorporates public health and socioecological approaches to inform how we will prevent, identify and respond to child sexual abuse across the Tasmanian community. These approaches recognise that child sexual abuse is influenced by a range of interconnected factors, from individual vulnerabilities to broader social, cultural, and environmental contexts. By adopting these approaches, this strategy goes beyond addressing the immediate but essential needs of victim-survivors and their families. It aims to tackle the causes of child sexual abuse, strengthen protective factors, and foster a culture of respect, safety, and accountability across all levels of society.

A public health approach is an integrated approach built on the principles of population health, equity, and collaboration across sectors.[23] It prioritises preventing abuse, intervening early when risks or incidents are identified, and supporting victim-survivors in recovery and healing:

• Primary prevention: focuses on stopping child sexual abuse before it occurs by addressing root causes and risk factors as child sexual abuse is preventable.
• Early intervention: targets at-risk children and families to mitigate harm and prevent escalation.
• Response: ensures an effective and trauma-informed reaction to child sexual abuse disclosures or discoveries and ensures perpetrators are held accountable.
• Recovery and healing: supports victim-survivors and their families to heal and rebuild their lives.

The socioecological approach provides a way to understand factors contributing to child sexual abuse at multiple levels:

• Individual: characteristics of the victim-survivor or perpetrator, such as age, gender, psychological health, history of trauma, or behaviours that may increase vulnerability or risk.
• Relationships: the influence of close social connections, including family, peers, or intimate relationships, that impact the likelihood of abuse occurring or being prevented.
• Organisations: institutional environments, such as schools, workplaces, religious organisations, and youth programs, and their policies, practices, and culture that either protect against or fail to prevent abuse.
• Law and policy: legal frameworks, regulations, and policies at a local, state, national, or international level that define, prevent, or address child sexual abuse, including reporting mechanisms and punishment for perpetrators.
• Community: neighbourhoods, social networks, and community norms, including factors like social cohesion, accessibility of resources, and cultural attitudes toward abuse and protection of children.
• Society: broader societal factors, such as cultural norms, economic conditions, media influences, and systemic inequalities shape attitudes, behaviours, and the prevalence of abuse.

The following figure explores the cascading repercussions and/or impacts of child sexual abuse across the multiple levels of socioecological factors (Figure 3).

Table 1 uses a matrix approach to demonstrate how the elements of a public health approach and socioecological factors interrelate. This matrix brings together the levels of prevention, multiple levels of socioecological factors and the range of broad initiatives which we have situated according to their ‘best fit’ in this framework.

Further, this strategy also emphasises a place-based approach to inform a tailored and context-sensitive framework for child sexual abuse prevention and response. This will ensure the response to child sexual abuse is integrated with local social initiatives and supports community empowerment. Place-based ways of working recognise:

• A localised understanding of risk: recognising that child sexual abuse risk factors vary across communities. These risks are influenced by social norms, structural inequalities, child-rights and participation and local community and institutional practices. These risk factors can make some settings more vulnerable than others to child sexual abuse.
• Using existing established relationships and networks: recognising the transformative power of relationships to influence, shape and maintain changes in cultural attitudes, beliefs and actions. Using existing networks and understanding the community ensures approaches are relevant and practical locally.
• Community engagement and ownership: involving local stakeholders – including Neighbourhood Houses, local councils and other community organisations and leaders – in designing, implementing and leading localised prevention strategies. This will ensure that solutions are culturally appropriate and grounded in the lived experiences of the community.
• Systemic and multi-level interventions: addressing child sexual abuse across individual, relational, institutional, and societal levels within a specific place. Situating responses to child sexual abuse within a context of other harms and risks will strengthen protective factors, community cohesion, accessible reporting mechanisms and robust institutional safeguards.

"It reminds me of that Einstein quote: ‘If you always do what you always did, you will always get what you always got.’ It's time for our government to break away from the status quo. Doing things differently isn't just a suggestion; it's a necessity if we want to see real change and protect our children effectively."

— specialist sexual violence practitioner, Laurel House consultation participant[25]

Responding to risk factors and drivers

The Government Response commits to the significant task of responding to deep failures of our government systems and institutions to protect children and young people from child sexual abuse and respond effectively when risks and allegations are brought to light. The Government Response outlines the substantial program of work and investment to deliver these commitments by transforming our government institutions, our systems, our culture and rebuilding trust.

However, prevention is only effective if we can recognise the warning signs of abuse and know how to respond to complaints and concerns about it. This requires changes to laws and policies, community and institutional cultures, and individual beliefs, attitudes and practices.

Evidence also shows that statutory responses to child sexual abuse focus on only one dimension of the issue and are often unable to prevent future harm.[26]

A holistic approach to the prevention of child sexual abuse integrates primary prevention, early intervention, response and recovery and healing. Due to the hidden nature of child sexual abuse, prevention efforts must also focus on raising whole of community awareness. Whilst focused on holding perpetrators to account, lack of community awareness and ignorance about the nature and prevalence of child sexual abuse leaves children vulnerable and can allow abuse to persist.[27]

The Iceberg Model for this strategy (Figure 4) has been co-designed with victim-survivors, community sector and government representatives to identify underlying causes and systemic structures that perpetuate child sexual abuse. By identifying all layers—from immediate responses to deeply held beliefs—this strategy aims to take a robust, holistic, and sustainable approach to addressing child sexual abuse in our community, including institutions.

By using a multifaceted approach to address the complex nature of child sexual abuse, as outlined in Figure 2, this strategy aims to provide the framework for systemic change. This includes focusing on the structural changes required and the beliefs and values that influence behaviours, decisions and actions.

Our Theory of Change

This strategy’s Theory of Change was developed using a systems thinking approach at the consultation and co-design workshop in November 2024, to identify how and why we expect change to occur as we work to achieve our vision. It provides a clear framework to understand how specific actions can lead to desired long-term outcomes. It ensures a more effective, evidence-based approach to tackling the complex nature of child sexual abuse. Our Theory of Change will underpin the forthcoming Change for Children action plans.

A summary version has been developed below, including the long-term outcomes we are working towards to achieve our vision and some of the key medium-term outcomes identified that will help us get there (Table 2). Our comprehensive Theory of Change is available on the Keeping Children Safe website.

How we will work together

“…If I tell an adult about something that I am worried about, they should listen to me, and believe me, and do something about it...”

— Participant, Commissioner for Children and Young People Tasmania, ‘Start the Conversation’[28]

Children and young people and victim-survivors are at the heart of this strategy to ensure that the principles of safety, dignity, and recovery guide every aspect of prevention, intervention, and response. We acknowledge that children and young people and victim-survivors are not just passive recipients of support but active contributors whose voices and experiences must shape the responses they receive.

Acknowledging the unique strengths, barriers and potential vulnerabilities of each child and young person and victim-survivor is a key part of this strategy. It emphasises responses that consider their age, developmental stage, cultural background, identity and individual circumstances. We recognise that all children and young people and victim-survivors have a right to feel and be safe.

By focusing on the perspectives of children and young people and victim-survivors, this strategy also promotes collaboration among caregivers, professionals, and communities to build a holistic, empathetic, and effective responses to child sexual abuse. It ensures that solutions are informed by professional expertise and understanding of the lived experiences of children and young people and victim-survivors, fostering trust and resilience.

Children and young people

To inform this strategy's development, the Commissioner for Children and Young People established The Voices for Tasmanian Youth. This group of 19 young people aged 10‑18 represents diverse communities, identities, and experiences across Tasmania. The Voices for Tasmanian Youth have shared their views on what they expect from this strategy and associated action plans.

Through conversations and brainstorming sessions, The Voices for Tasmanian Youth shared their concerns and discussed their visions for change (Our Vision for a Safer Tomorrow).

We commit to making the necessary changes to work towards their vision for a safer tomorrow through implementing Change for Children.

The Voices for Tasmanian Youth – Our Vision for a Safer Tomorrow

"We want a Tasmania where every child and young person feels safe, supported, and empowered to speak out."

"We want a future where adults genuinely listen, understand our experiences, and respond effectively. Where they build trust and open communication on topics like sex, consent and abuse."

"We want sex education that reflects our real lives and diverse experiences, promoting emotional, mental, and physical safety."

"We want a future where young voices have an equal say in decision-making, shaping safe environments in our institutions and communities."

"We want institutions that are safe spaces, where everyone feels welcome, respected, and supported. We need to trust the institutions that serve us, so that we feel confident attending school, accessing healthcare, and seeking help."

"We want reporting systems that are safe and easy to use. Where we know where to get support and who to report concerns to. Where complaints are handled independently and effectively."

"We want a future where cycles of violence are broken, and every young person is empowered to thrive through a focus on prevention, rehabilitation, and supportive networks."

"We want a safer tomorrow for all children and young people."

The United Nations Convention provides further foundational guidance on how we centre children and young people in implementing this strategy.

Article 12 asserts that children have the right to express their views freely in matters affecting them, emphasising:

• Participation – children should be involved in decision-making processes that impact their lives.
• Representation – mechanisms must be in place to ensure that their voices are heard meaningfully.

Article 13 ensures children have the right to seek, receive, and impart information through any medium they choose. This right underpins their ability to participate actively, communicate their perspectives, and contribute to decisions.

This strategy and the associated action plans will ensure that children and young people are engaged in the successful implementation through:

1. Space: creating safe and inclusive environments where children feel empowered to express themselves.
2. Voice: ensuring children can freely articulate their thoughts without fear of reprisal.
3. Audience: identifying the appropriate decision-makers who are responsible for listening to children.
4. Influence: guaranteeing that children’s views are acted upon and reflected in outcomes where appropriate.[29]

Engaging with children and young people in new and genuine ways is essential to ensure their participation in implementing this strategy is not merely symbolic but meaningful. The implementation of Change for Children and associated action plans will continue to be informed and guided by the voices of Tasmanian children and young people. Overall implementation of Change for Children will be informed by varied engagement with children and young people, including, where possible, with the Premier’s Youth Advisory Council, The Voices for Tasmanian Youth and the Laurel House Lived Experience Advisory Panel for Young People.

Victim-survivors

“Listen to us… our input is healing for some people.”

— Victim-survivor, Laurel House consultation session participant[30]

Victim-survivors are the experts of their own experiences and play a vital role in shaping policies and interventions that are trauma-informed and effective. Their lived experiences provide critical insights into the realities of abuse, the barriers to reporting, and the gaps in support systems. Involving victim-survivors in consultation and decision-making ensures that prevention, intervention, response and recovery efforts are aligned with real needs. This also breaks the silence around abuse and rebuilds trust in the systems designed to protect and support victim-survivors.

Effective and ongoing consultation and engagement with victim-survivors is crucial for the implementation of Change for Children. In late 2024, the child sexual abuse Victim‑Survivor Advisory Group (the Advisory Group) was established by the Premier.

The Advisory Group will provide a mechanism for representing the views of victim‑survivors to the Tasmanian Government to inform and shape the implementation of the Commission of Inquiry recommendations, including the development and implementation of this strategy and associated action plans.

The Tasmanian Government recognises that engagement with victim-survivors through advisory groups and other similar mechanisms is not the only way we should be working with victim-survivors. We are committed to exploring new ways of working in partnership with victim-survivors to ensure that they have a range of input mechanisms that suit a diverse range of engagement needs.

Working in partnership with Tasmanian Aboriginal people

“Culture is the way to come out of it. That’s what makes me feel safe. I believe that culture is the answer.”

— Consultation with Aboriginal community members, Commission of Inquiry report[31]

We recognise the disproportionate impacts of child sexual abuse on Aboriginal children and young people and their families, particularly due to the enduring impacts of colonisation, child removal, and the ongoing effects of these traumas.

The Commission of Inquiry focused significantly on the urgent need for reform in the ways that the Tasmanian Government works with Aboriginal people to build genuine partnerships and deliver recommendations focused on safeguarding Aboriginal children and young people. These include:

• appointment of a Commissioner for Aboriginal Children and Young People.
• development of an Aboriginal Youth Justice Strategy in partnership with Aboriginal organisations and people.
• full implementation of all Aboriginal and Torres Strait Islander Child Placement Principle elements.

In delivering these recommendations, we remain committed to the National Agreement on Closing the Gap Priority Reforms through changing practices at a system level to build partnerships and share decision-making with Aboriginal organisations and people.

We acknowledge and are aware of how our cultural values, knowledge, skills and attitudes are formed and affect others, including a responsibility to address unconscious bias, racism and discrimination.

We commit to building Aboriginal cultural safety, including reviewing and adapting organisations and systems to remove barriers to achieve health, wellbeing and safety outcomes for Aboriginal people.

Implementation of this strategy will be informed by kani paliti (Talk with good spirit), our commitment to Tasmanian Aboriginal people.

kani paliti (Talk with good spirit)

The Tasmanian Government will talk with Tasmanian Aboriginal people with good spirit to achieve our commitment statement. We commit to understanding, involving and empowering Tasmanian Aboriginal people.

We will:

• understand and build culturally proficient and responsive care systems that allow truth-telling to be embraced and accepted.
• involve and value Aboriginal and Torres Strait Islander expertise and collaborate with Tasmanian Aboriginal people to create culturally appropriate governance models.
• empower children to keep them with Tasmanian Aboriginal people so they can achieve their rights to grow strong on country and in culture and thrive within their cultural and care networks.

We commit to continue talks with Tasmanian Aboriginal people in good spirit as we work in partnership to achieve this statement.

Working with diverse communities

“You can't speak for/protect people if you have no understanding of their experiences in great depth and detail.”

— Victim-survivor, Laurel House consultation survey participant[32]

Child sexual abuse impacts children and young people across all areas of the community and impacts individuals and families from varying socio-economic, cultural, and geographical groups. Recognising that some children and young people may face additional barriers or risks than others is essential.

Different aspects of a child or young person’s identity, including their race, ethnicity, gender, family’s income level, and ability, may impact their risk of child sexual abuse. Children from marginalised groups may be at greater risk of experiencing child sexual abuse due to societal inequalities and lack of support. Perpetrators may also seek out children and young people who they perceive to be more vulnerable.

To effectively prevent, identify and respond to child sexual abuse in Tasmania, all aspects of children and young people’s identities must be understood and respected. Understanding any additional considerations for some children and young people will enable stronger and more inclusive approaches to addressing child sexual abuse.

The following section details particular groups who can experience a higher risk of child sexual abuse and/or additional barriers to disclosure and receiving support.

• Aboriginal children and young people are significantly over-represented in child protection systems and up to 8 times as likely as non-Aboriginal children to be the subject of substantiated child abuse or neglect, including sexual abuse.[33]
• Children and young people with disability face higher rates of sexual abuse and are often targeted due to their perceived vulnerability and dependence on caregivers.[34]
• Children with mental ill health may be at increased risk due to factors such as impaired judgement, difficulties in recognising or communicating unsafe situations and social isolation.[35]
• Gender or sexually diverse children and young people are more likely to experience all types of child maltreatment.[36] More than half (52 per cent) of all LGBTIQA+ children and young people experience child sexual abuse.[37]
• Children and young people from culturally and linguistically diverse backgrounds may face increased vulnerabilities. For example, differing views on what constitutes child abuse and neglect, fears related to visa status, and patriarchal cultures that value men's views over those of women and children can affect the disclosure of, and responses to, child sexual abuse.[38]
• Children and young people from regional and remote areas face additional barriers due to geographical isolation and access to services, as well as reluctance to speak out due to tight-knit communities and close connections.[39]
• Children and young people in closed institutions are at heightened risk of sexual abuse due to factors including isolation from the outside world, power imbalances and limited oversight.[40]

In early 2024, workshops were run to identify considerations for specific diverse communities. These workshops demonstrated that children and young people do not fit into discrete boxes, and as such, this strategy acknowledges the intersectionality of diverse communities. There are three primary considerations that all adults should ask themselves when preventing, identifying, and responding to child sexual abuse. These considerations are informed by kani paliti.

• Understand: take the time to listen actively, ask questions, and recognise individual contexts and needs.
• Involve: individuals and families in decisions that impact them and collaborate safely and effectively to ensure that children and young people and their families can contribute.
• Empower: create safety and support children and young people and their families to actively engage.

Throughout the implementation of this strategy, the Tasmanian Government commits to understanding individual needs, particularly for diverse communities, to ensure that initiatives and reforms are effective. We are committed to engaging with diverse communities to ensure that the delivery of Change for Children meets the needs of all people in Tasmania. To achieve this, we will use existing advisory group mechanisms across agencies, and look at new ways of working with diverse communities on policies and programs that will impact them.

Who is accountable for making change?

“Accountability requires actions not words, start from the top.”

— Victim-survivor, Laurel House consultation survey participant[41]

The Tasmanian Government has made a significant commitment to ensure that the findings and recommendations of the Commission of Inquiry and related inquiries are translated into meaningful actions by Tasmanian Government agencies. All Tasmanians, and most importantly, victim-survivors of child sexual abuse, are entitled to know clearly who is formally responsible for making the changes this strategy outlines.

Reform implementation will be overseen by the Keeping Children Safe Governance Structure which is detailed below:

In line with the Commission of Inquiry’s recommendation (22.1), the Government has appointed an independent Child Safety Reform Implementation Monitor to oversee the reform program. To ensure accountability and transparency, the Monitor will report to Parliament on implementing the recommendations of the Commission of Inquiry and any recommendations of other institutional inquiries, including the Royal Commission and other related State Service reviews (see Appendix 3).

Formal accountabilities

Some entities and individuals hold formal responsibilities outlined in legislation, professional conduct policies and other guidelines. These are detailed in Table 3.

Child safe organisations

“Victim-survivors need a safe person to go to, particularly if the young person is currently experiencing the abuse and the home is where the abuse is occurring. Abuse thrives in silos – even family silos. To break this circuit society needs to create opportunities for young people to engage with safe people outside of the home…”

— Consultation participant, Sexual Assault Support Service consultation[42]

In direct response to the 2017 Royal Commission, the governments of Australia developed the National Principles for Child Safe Organisations (National Principles).[43]

These National Principles are now enshrined in legislation as Tasmania’s Child and Youth Safe Standards (the Standards).[44] The Standards are supported by the Universal Principle for Aboriginal Cultural Safety.

All organisations engaging in child-related activities should voluntarily comply with the National Principles (as reflected in the Standards) to the greatest extent possible, regardless of whether they are legislatively bound to do so or when their legislative obligations commence.

The Office of the Independent Regulator ensures implementation and oversight of the Standards through legal obligations under the Child and Youth Safe Organisations Act 2023. Tasmania’s Child and Youth Safe Organisations Framework plays a key role in Tasmania’s child safety system by ensuring that specific organisations are monitored and held accountable for keeping children safe.

Implementation of the Standards by agencies and organisations, including religious organisations, and oversight of this implementation by the Independent Regulator is another way that entities will be held accountable for keeping children safe.

The Standards give effect to the rights of children by translating them into organisational standards and practice. This is shown in Table 4.

Information, sharing and feedback

Beyond formal accountabilities, this strategy recognises that particular groups of people also have a role in overseeing reform. Change for Children recognises that it is every adult’s responsibility to keep children and young people safe. Preventing, identifying and responding to child sexual abuse is a collective responsibility that involves all Tasmanians.

This means that at an individual level, within our social circles and family units, within and across our communities, organisations and institutions, and our society at large, we all have a role to play. The Tasmanian Government remains committed to being accountable to all Tasmanians, and in particular to victim-survivors of child sexual abuse. Ongoing critical engagement with specialist services will ensure that the diversity of victim-survivor voices are listened to, heard and supported as Change for Children and associated action plans are implemented.

Further, the Tasmanian Government recognises the essential role of community organisations that deliver health, mental health, housing, disability and other critical services. Community organisations have an essential role in not only providing services, but challenging and changing cultural attitudes and beliefs that discriminate against some members of the community.

How will we know that we are having an impact?

Change for Children lays out a plan to achieve different types of change over a sustained period. This change can and will be measured in various ways, and by other entities in the system.

The ongoing monitoring and accountability under this strategy will be outlined under the Change for Children associated action plans including an Outcome and Evaluation Framework that will be released in 2025. This framework will be designed to monitor and evaluate the effectiveness of the Theory of Change and include the commissioning of an independent evaluation in 2029 and 2034 on the implementation of the strategy’s long-term outcomes. The Framework will also provide assurances to the Tasmanian people that the system is working well and has children and young people and victim-survivors at its core.

Several other mechanisms that have been built into the Tasmanian Government’s response to the Commission of Inquiry that will contribute to the monitoring and evaluation of this strategy and associated action plans. These are:

• Quarterly reporting on the Recommendation Status of the Commission of Inquiry recommendations will be published on the Keeping Children Safe website.
• The Child Safety Reform Implementation Monitor independently holds the government accountable for reform progress, which includes:
  • developing an Evaluation Framework and undertaking analysis and public reports on whether outcomes are being realised and how reforms are being implemented for both the Commission of Inquiry and Royal Commission findings and recommendations.
  • provide periodic reports every five years to monitor and mitigate unintended consequences of reforms and support continuous improvement.
• The Independent Regulator oversees Tasmania’s compliance with the Child and YouthSafe Organisations Framework.

In addition to these mechanisms:

• the action plans will have performance measures that will be reported annually and align where possible with the Monitoring and Evaluation Framework – National Strategy to Prevent and Respond to Child Sexual Abuse 2021–2030.
• the Department of Premier and Cabinet will commission the periodic over-sampling of Tasmanian data of the National Centre for Action on Child Sexual Abuse’s Australian child sexual abuse attitudes, knowledge and response study to measure any community‑wide changes.

Common perpetrator risk factors

While there is a diversity of perpetrator types, some of the most frequently observed risk factors associated with perpetrating have been identified as:[90]

• being male.[91]
• exposure to highly sexualised environments.
• a history of childhood abuse and/or neglect.
• involvement in violent or criminal behaviour.
• experience of family violence and instability.

While a number of risk factors are shared with other (non-sexual) criminal offenders, the key point of difference is the sexual drive to offend. This is supported by recent research on the attitudes of child sexual abuse perpetrators, such as their beliefs and attitudes in relation to children and young people as sexual objects, a general preoccupation with sex, and beliefs about entitlement, authority or control.[92]

In recognising this point, the Royal Commission identified three types of perpetrators:[93]

• persistent perpetrators: are typically long-term abusers with a sexual attraction to children or young people. They often target multiple victims, lack age-appropriate relationships, and are more likely to exhibit paedophilic interests. However, this group represents a minority and does not reflect most perpetrators, despite common stereotypes.
• opportunistic perpetrators: are less fixated on abusing children, often engaging in other criminal behaviours. They may not prefer children over adults but exploit opportunities for sexual gratification. Unlike others, they rarely groom or create situations to enable abuse.
• situational perpetrators: typically lack a sexual preference for children, they abuse in response to personal issues like isolation, poor relationships, or low self-esteem.

Children and young people who display harmful sexual behaviours

Some children and young people experience sexual abuse by other children and young people. The term ‘harmful sexual behaviours’ is used to cover a wide range of sexual behaviours that are inappropriate for the child’s age and development.

‘Harmful sexual behaviours’ is used to describe sexual behaviours by a child or young person that causes harm to themselves or others.[94] As sexual development and exploration is a normal part of childhood and growing up, not all sexual behaviours are harmful or concerning. For this reason, sexual behaviours can be understood across a continuum of varying levels, from developmentally appropriate to developmentally inappropriate, to more concerning, serious and/or extreme harmful sexual behaviours.

In recognition of their developing physical, psychological, emotional, and educational needs, children who engage in harmful sexual behaviours are not labelled as perpetrators. The protection of the best interests of the child places greater focus on rehabilitation and restorative justice rather than punitive measures, while also ensuring public safety. Further, most children and young people who receive appropriate treatment, supervision and support will stop displaying harmful sexual behaviours.[95] For these reasons it is important that harmful sexual behaviour is prevented with early intervention so that harm is minimised and children are kept safe from sexual abuse.

There are a number of risk factors for children and young people displaying harmful sexual behaviours. Commonly identified factors include prior trauma, exposure to family violence, prior sexual or physical abuse, exposure to pornography, and intellectual impairment and intellectual difficulties.[96]

Trends show an increase in reports of adolescents who are displaying harmful sexual behaviours against other children and young people.[97] It is likely this has been influenced by several social factors including greater access to online sexually explicit material, including violent content, compared to previous generations.[98] This driver is compounded by forms of masculinity that promote male dominance, entitlement (including sexual entitlement), authority and control.[99]

Children and young people who have displayed or experience harmful sexual behaviours need a supportive, compassionate and understanding response. Both may benefit from a range of trauma-informed services to meet their needs.

Drivers of child sexual abuse

Drivers are the fundamental factors or social conditions that contribute to environments where child sexual abuse can occur.

Much like family and sexual violence, the primary drivers of child sexual abuse are gendered due to perpetrators being overwhelmingly male and victim-survivors being overwhelmingly female. The root cause of sexual violence against women and girls is recognised to be forms of masculinity that promote male dominance, entitlement (including sexual entitlement), authority and control. These attitudes and behaviours are reinforced by male peer relations and cultures of masculinity that emphasise exploitation and entitlement.[100],[101]

Children and young people’s structural vulnerability within families, organisations and institutions can increase their vulnerability to sexual abuse.[102] Beliefs and attitudes that contribute to this include:

• beliefs that adults possess inherent superiority and authority over children and young people.
• attitudes that downplay or disregard children and young people’s perspectives, emotions, and experiences in relationships and events.
• beliefs that children and young people should not question or challenge adults, viewing such behaviour as intentionally defiant or provocative.

These attitudes can lead to problematic assumptions that adults’ behaviour and interaction with children and young people is appropriate or in the child’s best interest. This allows adult perpetrators to manipulate a range of situations and groom children.

Table 6 provides an overview of the risk factors and drivers, which are available in more detail in the corresponding companion document Understanding Child Sexual Abuse on the Keeping Children Safe website.

4.3 The intersection of child sexual abuse and family and sexual violence

“…more of an emphasis on shifting patriarchal/sexist attitudes that lead to gendered violence. This could happen through more campaigns in the media, talks in schools, etc. Information packages for parents could be good too to try and instil these values, so that instead of only teaching their daughters to say 'no' and to be safe at night, they have conversations with their sons about affirmative consent and respecting women.”

– Survey respondent, Sexual Assault Support Service consultation survey[104]

Child sexual abuse and family and sexual violence are deeply intertwined, sharing a number of similar characteristics, impacts, risk factors and drivers. However, despite these similarities the dynamics of child sexual abuse are different from family and sexual violence because child sexual abuse and exploitation occurs within a wider range of circumstances, relationships and settings where children’s structural vulnerability relative to adults can be exploited by perpetrators. These factors highlight the importance of adopting a tailored approach to the prevention and response to child sexual abuse.

This strategy complements the work already underway to prevent and respond to family and sexual violence in Tasmania through Survivors at the Centre: Tasmania’s Third Family and Sexual Violence Action Plan 2022-2027.

Gendered nature of sexual abuse

Women are much more likely to have been victims of child sexual abuse than men, with girls in contemporary Australia 2.5 times more likely to experience child sexual abuse.[105] Evidence also clearly shows that men are overwhelmingly the main perpetrators of child sexual abuse and family and sexual violence.[106] Of the victim-survivors who told the Royal Commission about sexual abuse by an adult, almost all (94 per cent) said they were abused by a man.[107] Like child sexual abuse, women are overwhelmingly the victims of family and sexual violence.

Co-occurrence of child sexual abuse and family and sexual violence

Child sexual abuse and family and sexual violence often occur within the same family environment, with perpetrators being family members or intimate partners. As with family and sexual violence, child sexual abuse also occurs within controlling relationships, characterised by patterns of coercion and manipulation.

The co-occurrence of child sexual abuse and family and sexual violence refers to the situation where both forms of abuse happen within the same family by the same person. Emerging research from the University of New South Wales on the prevalence rates of child sexual abuse and family and sexual violence victimisation have found co-occurrence rates ranging from 23 per cent to 91 per cent.[108]

The intersection of family violence, sexual violence, and child sexual abuse often leads to intergenerational cycles of trauma. This cycle comes from the interplay of emotional, behavioural, and systemic factors that perpetuate harm across generations.

Evidence also shows that people who experience sexual abuse in childhood are more likely to report family violence as adults. This poses challenges in responding effectively to the intersections of family and sexual violence and familial child sexual abuse. Women and children in these situations may feel trapped or powerless to speak out, especially if they are dependent on the abuser for care, shelter or emotional support. The fear of further violence can prevent children and adults from disclosing either form of abuse.

Exposure to family and sexual violence has been identified as a common risk factor for children to engage in harmful sexual behaviours. Witnessing violence or being directly involved in abusive situations can lead to children mimicking or engaging in harmful sexual behaviours as a way of coping or exerting control.[109]