National Policy Framework
SALC BILL
Objectives 1. In the application of the
provisions of this Act, the following
objectives must be considered: (a)
complainants should not be
discriminated against, either directly
or indirectly, on the grounds of race,
colour, ethnic or social origin, birth
status, sex, gender, sexual
orientation, age and developmental
level, disability, religion, conscience,
belief, culture or language. (b)
Complainants should be treated with
dignity and respect (c) Complainants
should be ensured access to the
mechanisms of justice. (d)
Complainants should be informed of
their rights and the procedures within
the criminal justice system. (e)
Complainants should have the right
to express an opinion, to be informed
of all decisions, and to have their
opinion taken seriously in any matter
affecting them. (f) In addition to all
due process and constitutional rights,
complainants should have the
following rights- (i) to have present at
all decisions affecting them a person
or persons important to their lives; (ii)
to have matters explained to them in
a clear, understandable manner
appropriate to their age and in a
language and manner which they
understand; (iii) to remain in the
family, where appropriate, during the
investigation and whilst awaiting a
final resolution of the matter and, if a
child is removed from the family, to
have the placement periodically
reviewed; (iv) to have procedures
dealt with expeditiously in time
frames appropriate to the
complainant and the offence. (g)
Complainants should have the right
to confidentiality and privacy and to
protection from publicity about the
offence (h) Complainants and their
families should be entitles to receive
such therapeutic assistance as is
necessary to promote healthy
functioning. Where possible the
offender should make a financial or
material contribution to such
assistance. (i) The vulnerability of
children should entitle them to
speedy and special protection and
August 2003 BILL
National Policy Framework 24. The Minister
for Justice and Constitutional Development
must- (a)prepare a national policy framework
to guide the implementation, enforcement,
and administration of this Act in order to
secure acceptable and uniform treatment of
all sexual offence matters; (b) review the
policy framework at least once every five
years; and (c) when required amend the
policy framework. 25. The Minister for
Justice and Constitutional Development
must- (a) prepare a national policy
framework to guide the implementation,
enforcement and administration of this Act in
order to secure acceptable and uniform
treatment of all sexual offence matters; (b)
review the policy framework at least once
every five years; and (c) when required
amend the policy framework. 25. The
Minister for Justice and Constitutional
Development, in consultation with the
Ministers of Safety and Security,
Correctional Services, Social Development
and Health, may make regulations
regarding- (a) any matter which is required
or permitted by this Act to be prescribes by
regulation; (b) the inter-sectoral
implementation of this Act; and (c) any other
matter which is necessary or expedient to
prescribe in order to achieve or promote the
objects of this Act
Schedule 1Guiding principles to be
considered in the application of this Act and
the adjudication of sexual offences generally
In the application of the provisions of this Act
and the adjudication of sexual offences
generally, the following objectives must be
considered: (a) Complainants should not be
discriminated against, either directly or
indirectly, on the grounds of race, colour,
ethnic or social origin, birth status, sex,
gender, sexual orientation, age and
development level, disability, religion,
conscience, belief, culture or language. (b)
Complainants should be treated with dignity
and respect (c) Complainants should be
ensured access to the mechanisms of
justice. (d) Complainants should be informed
of their rights and the procedures within the
criminal justice system. (e) Complainants
should have the right to express an opinion,
to be informed of all decisions, and to have
their opinion taken seriously in any matter
affecting them. (f) In addition to all due
FEBRUARY 2004 BILL
Objects. The objects of this Act are to- (a)
protect complainants of sexual offences
and their families from secondary
victimisation by establishing a cooperative response between government
departments involved in implementing an
effective criminal justice response to
matters related to sexual offences. (b)
promote the spirit of batho pele in the
criminal justice system dealing with
sexual offences by- (i) entrenching
accountability of government officials
through Parliamentary oversight; (ii)
eliminating or minimising disparities in
provision of service to victims of sexual
offences; and (iii) ensuring more effective
prosecution of perpetrators of sexual
offences by clearly defining existing
offences, creating new offences and
ensuring accountability of a wider range
of persons involved in the commissions
of sexual offences; and (iv) giving proper
recognition to needs of victims of sexual
offences for timely investigation and
prosecution; and (c) empathetically
condemn offences of a sexual nature and
more specifically those committees
against children and vulnerable adults
.
Chapter 7, Clause 38 (1) The Minister for
Justice and Constitutional Development
must, after consultation with the Ministers
of Safety and Security, Correctional
Services, Social Development and
Health, develop a national policy
framework to ensure a uniformed and coordinated approach by all Government
departments in dealing with the sexual
offence matters and to guide the
implementation, enforcement and
administration of this Act. (2) The national
policy framework must contain the
following- (a) national objectives to
ensure a uniform approach by the
different organs of state in dealing with
sexual offence matters; (b) priorities and
strategies to achieve objectives; (c)
performance indicators to measure
progress with the achievement of those
objectives; (d) a framework for cooperative governance in the
implementation and administration of this
Act; (e) the allocation to the different
spheres of government and to different
organs of state of primary and supporting
provision of services by all roleplayers during all phases of the
investigation, the court process and
thereafter. (j) Since the family and
the community are central to the
well-being of a child, consideration
should be given, in any decisions
affecting a child, to- (i) ensuring that,
in addition to the child, his or her
family, community and other
significant role-players are consulted;
(ii) the extent to which decisions
affecting the offender will affect a
child, his or her family and
community; (iii) the particular
relationship between the offender
and a child; (iv) keeping disruptive
intervention into child, family and
community life to a minimum in order
to avoid secondary victimisation of
the child. (k) Restorative and
rehabilitative alternatives should be
considered and applied unless the
safety of the complainant and the
interests of the community requires
otherwise. (l) A person who commits
a sexual offence should be held
accountable for his or her actions
and should be encouraged to accept
full responsibility for his or her
behaviour. (m) In determining
appropriate sanctions for a person
who has been found guilty of
committing a sexual offence- (i) the
sanctions applied should ensure the
safety and security of the victim, the
family of the victim and the
community; (ii) the sanctions should
promote the recovery of the victim
and the restoration of the family of
the victim and community; (iii) Where
appropriate, offenders should make
restitution which may include
material medical or therapeutic
assistance, to victims and their
families or dependants; (iv) the child
sexual offender should receive
special considerations in respect of
sanctions and rehabilitation; (v) the
possibility of rehabilitating the sexual
offender should be taken into
account in considering the long-term
goal of safety and security of victims,
their families and communities; (vi)
the interests of the victim should be
considered in any decision regarding
process and constitutional rights,
complainants should have the following
rights- (i) to have present at all decisions
affecting them a person or persons
important to their lives; (ii) to have matters
explained to them in a clear, understandable
manner appropriate to their age and in a
language and manner which they
understand; (iii) to remain in the family,
where appropriate, during the investigation
and whilst awaiting a final resolution of the
matter and, if a child is removed from the
family, to have the placement periodically
reviewed; (iv) to have procedures dealt with
expeditiously in time frames appropriate to
the complainant and the offence. (g)
Complainants should have the right to
confidentiality and privacy and to protection
from publicity about the offence (h) The
vulnerability of children should entitle them
to speedy and special protection and
provision of services by all role-players
during all phases of the investigation, the
court process and thereafter. (i) Since the
family and the community are central to the
well-being of a child, consideration should be
given, in any decisions affecting a child, to(i) ensuring that, in addition to the child, his
or her family, community and other
significant role-players are consulted; (ii) the
extent to which decisions affecting the
offender will affect a child, his or her family
and community; (iii) the particular
relationship between the offender and a
child; (iv) keeping disruptive intervention into
child, family and community life to a
minimum in order to avoid secondary
victimisation of the child. (j) Restorative and
rehabilitative alternatives should be
considered and applied unless the safety of
the complainant and the interests of the
community requires otherwise. (k) A person
who commits a sexual offence should be
held accountable for his or her actions and
should be encouraged to accept full
responsibility for his or her behaviour. (l) In
determining appropriate sanctions for a
person who has been found guilty of
committing a sexual offence- (i) the
sanctions applied should ensure the safety
and security of the victim, the family of the
victim and the community; (ii) the sanctions
should promote the recovery of the victim
and the restoration of the family of the victim
and community; (iii) Where appropriate,
offenders should make restitution which may
roles and responsibilities; and (f)
measures to ensure adequate funding.
(3) The Minister must- (a) within six
months after the implementation of this
Act, table the policy framework in
Parliament; (b) publish the policy
framework in the Gazette; (c) review the
policy framework at least once every five
years; and (d) amend the policy
framework 39. (1) There is hereby
established a Committee to be known as
the Inter-sectoral Committee for the
Management of Sexual Offence Matters.
(2) The Committee shall consist of- (a)
the Director-General of the Department of
Justice and Constitutional Development,
who shall be the chairperson of the
Committee; (b) the Commissioner of the
South African Police Service; (c) the
Commissioner of the Correctional
Services; (d) the Director-General of the
Department of Social Development; (e)
the Director-General of the Department of
Health; and (f) the National Director of
Public Prosecutions, or a senior official in
the Office of the National Director
designated by him or her. (3) The
members of the Committee may
designate an alternate to attend a
meeting of the Committee in their place
(4) The members of the Committee shall
designate one of its members as deputy
chairperson of the Committee, and when
the chairperson is not available, the
deputy chairperson shall act as
chairperson. Meetings of Committee (40)
(1) A meeting of the Committee shall be
held at a time and place determined by
the chairperson (2) the procedure,
including the manner in which decisions
shall be taken, to be followed at meetings
of the Committee and the manner in
which the Committee shall conduct its
affairs shall be determined by the
Committee. Responsibilities, functions
and duties of Committee 41. (1) The
Committee shall be responsible for- (a)
the implementation of the priorities and
strategies contained in the national policy
framework referred to in section 32(2); (b)
measuring progress on the achievement
of the national objectives; (c) ensuring
that the different organs of state comply
with the primary and supporting roles and
responsibilities allocated to them in terms
of the national policy framework; and (d)
sanction. (n) In order to avoid
systemic secondary victimisation of
the victim of sexual offences, binding
inter-sectoral protocols following an
inter-disciplinary approach should be
followed. (o) All professional and
role-players involves in the
management of sexual offences
should be properly and continuously
trained after going through a proper
selection and screening process. (p)
Cultural diversity should be taken
into account in all matters pertaining
to the victim, the offender and to their
communities. The existence of
cultural differences should be no
justification for or licence to commit a
sexual offence or to exclude a
criminal justice process.
National Policy Framework 28 (1)
The Minister for Justice and
Constitutional Development must- (a)
prepare a national policy framework
to guide the implementation,
enforcement and administration of
this Act in order to secure acceptable
and uniform treatment of all sexual
offence matters; (b) review the policy
framework at least once every five
years; and (c) when required, amend
the policy framework (2) The Minister
must publish the national policy
framework and each amendment of
the framework by notice in the
Government Gazette. (3) The
national policy framework binds- (a)
all organs of state in the national,
provincial and local spheres of
government; and (b) any other
organizations involved in
programmes or projects concerning
sexual offence matters. 29. (1) The
national policy framework must- (a)
be coherent policy directive
appropriate for the Republic as a
whole to guide the apprehension and
prosecution of offenders and the
protection of victims of sexual
offences; (b) provide for integrated,
co-ordinated and uniform approach
by organs of state in all spheres of
government and other organisations
on which it is binding; and (c) be
consistent with the provisions of this
Act. (2) The national policy
include material medical or therapeutic
assistance, to victims and their families or
dependants; (iv) the child sexual offender
should receive special considerations in
respect of sanctions and rehabilitation; (v)
the possibility of rehabilitating the sexual
offender should be taken into account in
considering the long-term goal of safety and
security of victims, their families and
communities; (vi) the interests of the victim
should be considered in any decision
regarding sanction. (m) In order to avoid
systemic secondary victimisation of the
victim of sexual offences, binding intersectoral protocols following an interdisciplinary approach should be followed.
(n) All professional and role-players involves
in the management of sexual offences
should be properly and continuously trained
after going through a proper selection and
screening process. (o) Cultural diversity
should be taken into account in all matters
pertaining to the victim, the offender and to
their communities. The existence of cultural
differences should be no justification for or
licence to commit a sexual offence or to
exclude a criminal justice process.
monitoring the implementation of this Act.
(2) The Committee may make
recommendations to the Minister with
regard to the amendment of the national
policy framework. (3) The individual
members of the Committee must submit
annual reports to Parliament on the
implementation of this Act. National
Instructions and Directives 42 (1)(a) The
National Commissioner of The South
African Police Service must, in
consultation with the Office of the
National Director or Public Prosecutions,
issue and publish in the Gazette nation
instructions regarding all matters which
are reasonably necessary or expedient to
be provided for and which must be
followed by all police officials who are
tasked with receiving reports of an the
investigation of sexual offences cases in
order to achieve the objects of this Act as
set out in section 2 and the Preamble,
particularly those objects which have a
bearing on complainants of such
offences, including the following- (i) The
manner in which the reporting of an
alleged sexual offence is to be dealt with
by police officials; (ii) the manner in which
sexual offences cases are to be
investigated by police officials, including
the circumstances in which an
investigation in respect of a sexual
offence may be discontinued; and (iii) the
circumstances in which consultation with
the prosecuting authority is required in
the case of any alleged sexual offence.
(b) The National Commissioner of the
South Africa Police Service must develop
training courses, which must- (i) include
training on the national instructions
referred to in paragraph (a); (ii) include
social context training; and (iii) provide for
and promote the use of uniform norms,
standards, and procedures with a view to
ensuring that as many police officials as
possible are able to deal with sexual
offence cases in an efficient and sensitive
manner. (2) (a) The National Director of
Public Prosecutions must, in consultation
with the Cabinet member responsible for
the administration of justice and after
consultation with the National
Commissioner of the South Africa Police
Service and the Directors- General:
Health and Social Development, issue
and publish in the Gazette directives
framework must reflect the following
core components: (a) national
objectives to ensure a uniform
approach on how sexual offence
matters should be dealt with; (b)
priorities and strategies to achieve
those objectives; (c) performance
indicators to measure progress with
the achievement of those objectives;
(d) provide for the uniform
accountability and disciplinary
mechanisms for all functionaries
involved; (e) a framework for cooperative governance on a crossfunctional and multi-disciplinary basis
in the implementation of the Act; (f)
the allocation to the different spheres
of government and to different
organs of state of primary and
supporting roles and responsibilities
in this regard; (g) the engagement of
non-governmental organisations in
the implementation, enforcement and
administration of this Act and in the
development and implementation of
programmes and projects giving
effect to this Act; and (h) measure to
ensure adequate funds. 30. (1) In
developing and publishing the
national policy framework or any
amendment to the framework, the
Minister must- (a) generally follow a
consultative process as may be
appropriate in the circumstances; (b)
consult with- (i) Cabinet members
whose departments are affected by
the framework or amendment; and
(ii) organs of state in other spheres of
government in accordance with the
principles of co-operative
government as set out in Chapter 3
of the Constitution; and (c) engage
the participation of the public and
non-governmental organisations in
the process. (2) The Minister may
not publish the national policy
framework, or any amendment to the
framework, except with the
concurrence of the Cabinet members
whose departments are directly
affected by the framework or
amendment. 31. The Minister for
Justice and Constitutional
Development, in consultation with the
Ministers of Safety and Security,
Correctional Services, Social
regarding all matters which are
reasonably necessary or expedient to be
provided for and which are to be followed
by all members of the prosecuting
authority who are tasked with the
institution and conduction of prosecutions
in sexual offences cases in order to
achieve the objects of this Act as set out
in section 2 and the Preamble,
particularly those objects which have a
bearing on complainants of such
offences, including the following- (i) The
manner in which sexual offences cases
should be dealt with in general, including
the circumstances in which a charge may
be withdrawn or a prosecution stopped;
(ii) the circumstances in which the
prosecution must apply to court for an
order that a witness give evidence by
means of closed circuit television as
provided for in section 158 of the Criminal
Procedure Act, 1977 (Act No. 51 of
1977); (iii) the circumstances in which the
prosecution must request the court to
consider appointing a competent person
as an intermediary as provided for in
section 170A of the Criminal Procedure
Act, 1977 (Act No. 51 of 1977); (iv) the
circumstances in which the prosecution
must request the court to consider
direction that the proceedings may not
take place in open court as provided for
in section 153 of the Criminal Procedure
Act, 1977 (Act No. 51 of 1977). (v) the
circumstances in which the prosecution
must request the court to consider
prohibiting the publication of the identity
of the complainant in the case as
provided for in section 154 of the Criminal
Procedure Act, 1977 (Act No. 51 of
1977), or of the complainant’s family,
including the publication of information
that may lead to the identification of the
complainant or the complainant’s family;
(vi) the information to be places before a
court during sentencing, including presentence reports and information on the
impact of the sexual offence on the
complainant; (vii) the manner in which
prosecutors must ensure that an order
contemplated in section X (dealing with
order for a court to include the accused’s
name in the Register) is forwarded to and
received by the Registrar of the National
Register for Sex Offenders; and (viii) the
circumstances in which and the manner
Development and Health, may make
regulations regarding- (a) any matter
which is required or permitted by this
Act to be prescribed by regulation;
(b) the inter-sectoral implementation
of this Act; and (c) any other matter
which is necessary or expedient to
prescribe in order to achieve or
promote the objects of this Act.
of consultation with the members of the
South African Police Services regarding
sexual offences cases. (b) The National
Director of Public Prosecutions must
develop training courses, which must- (i)
include training on the directives referred
to in paragraph (a); (ii) include social
context training; and (iii) provide for and
promote the use of uniform norms,
standards and procedures, with a view to
building a dedicated and experiences
pool of trained and specialised
prosecutors who are able to deal with
sexual offences cases in an efficient and
sensitive manner. (3) (a) The DirectorGeneral: Health must, after consultation
with the Directors-General: Justice and
Constitutional Development and Social
Development and the National
Commissioner of the South African Police
Service, publish in the Gazette directives
regarding all matters which are
reasonably necessary or expedient to be
provided for and which are to be followed
by all health care practitioners who are
tasked with the administering of the Post
Exposure Prophylaxis in sexual offences
cases in order to achieve the objects of
this Act as set out in section 2 and the
Preamble, particularly those objects
which have a bearing on complainants of
such offences/. (b) The Director-General:
Health must develop training courses
which must- (i) include training on the
directives referred to in paragraph (a); (ii)
include social context training; and (iii)
provide for and promote the use of
uniform norms, standards and procedure,
with a view to building a dedicated and
experiences pool of trained and
specialised health care practitioners who
are able to deal with sexual offences
cases in an efficient and sensitive
manner(4) (a) The national instructions
and directives contemplated in this
section must, before publication in the
Gazette, be approved by Cabinet and
within 14 days thereafter, be tabled in
Parliament for approval and must be
made within six months after the
commencement of this Act. (b)
Paragraph (a) applies to any new or
amended national instructions or
directives issued under this section with
the changes required by the context. (5)
(a) The training courses contemplated in
this section must be tables in Parliament
for approval within six months after the
commencement of this Act. (b) The
Cabinet members responsible for safety
and security, the administration of justice
and health must, within a year after the
commencement of this Act and every 12
months thereafter, table a report in
Parliament relating to the implementation
of the training courses. (c) Any new or
amended training courses developed
under this section must be tabled in
Parliament within 14 days of the
finalisation thereof. (6) Any person who
fails to comply with or contravenes a
provision of any national instruction or
directive contemplated in this section is
subject to disciplinary steps being taken
against him or her in terms of the law.
Regulations 43. The minister for Justice
and Constitutional Development after
consultation with the Ministers of Safety
and Security, Correctional Services,
Social Development and Health, may
make regulations regarding- (a) any
matter which is required or permitted by
this Act to be prescribes by regulations;
9b) the inter-sectoral implementation of
this Act; and (c) any other matter which is
necessary or expedient to prescribe in
order to achieve or promote the objects
of this act.
Comments on National Policy Framework Clause:
1. SALC:
a. Stresses a co-operative governance with uniform accountability
b. Calls for engagement of NGO’s in the implementation, enforcement and administration of Act
c. Includes a separate clause on required Consultative Process. Process calls for consultation with
effected departments, organs of state, NGOs, and the public before formation of NPF or
amendments.
2. August 2003 Bill:
a. No consultative process
b. Does not bind organs of state- no longer joint responsibility
3. February 2004 Bill:
a. No consultative process
b. Co-operative governance and binding of organs of state stronger than August 2003 Bill, but is not
highlighted as in the SALC Bill
c. Created Inter-sectoral committees to manage sexual offences matters
(i)
committee consists of: Director-General of the Department of Justice and
Constitutional Development (chairperson), the Commissioner of the South African
Police Service; the Commissioner of the Correctional Services; the DirectorGeneral of the Department of Social Development, the Director of the Department
of Health, and the National Director of Public Prosecutions
(ii)
Procedure of Meetings (including decisions making) to be designed by Committee
(iii)
Responsibilities include but are not limited to ensuring compliance of organs of
state and monitoring the implementation of Act.
d.
National Instructions and Directives guidelines added in order to create detailed instructions
regarding the investigation and handling of sexual offences
(i)
Instructions and Directives to be written by the National Commissioner of the
South African Police Service
(ii)
The National Commissioner of the South African Police Force must also create a
training course for officers providing guidelines on the following the national
instructions, social context training, and promoting the use of standard
procedures.
(iii)
States that “any person who fails to comply with or contravenes a provision of any
national instruction or directive contemplated in this section is subject to
disciplinary steps being taken against him or her in terms of the law
(iv)
Director-General: Health must also develop training courses regarding the
treatment of victims. This sub-clause specifically deals with the administration of
Post Exposure Prophylaxis
Oral Submissions made on National Policy Framework:
1. There were three submissions supporting the inclusion of the consultative process clause from the SALC Bill
2. There were two submissions supporting the development of training guidelines
3. There were two submissions supporting a clause which outlines the consequences of failing to comply with
the National Policy Framework
4. There were six submissions supporting an inter-sectoral, binding approach
Comments on Objectives/ Guiding Principles
1. SALC
a. Objectives are the first clause of the Bill
b. Objectives highlight victim rights and include measures to ensure the victim’s protection
c. Includes a sub-clause entitling victims and families to therapy- (h) Complainants and their families
should be entitled to receive such therapeutic assistance as is necessary to promote healthy
functioning. Where possible the offender should make a financial or material contribution to such
assistance.
2. August 2003 Bill
a. Guiding Principles are in Schedule 1 at the end of the Bill
b. The Principles are the same as the SALC objectives, minus the sub-clause on victim and family
entitlement to therapy (see above)
3. February 2004 Bill
a. Objects are placed at the beginning of the Bill after definitions
b. The focus of the objects is on protecting the victims and eliminating secondary victimization
c. The specific objectives of how to achieve the goal of protecting victims and eliminating secondary
victimization are not included.
Oral Submission on Objectives/Guiding Principles
1. There are twelve oral submissions supporting the movement of the principles to the front of the Bill
2. There are six oral submissions supporting the use of more powerful language.
3. There is one oral submission supporting the addition of the sub-clause (h) from SALC’s Bill. This subclause supports the right to therapy for the victim and the victim’s family.