Policy/Program Memorandum 144

Date of Issue: November 25, 2021

Effective: Until revoked or modified

Subject: Bullying prevention and intervention

Application: Directors of Education
Supervisory Officers and Secretary-Treasurers of School Authorities
Principals of Elementary Schools
Principals of Secondary Schools
Principals of Provincial and Demonstration Schools

Introduction

The purpose of this memorandum is to provide direction to school boards^{footnote 1[1]} to support the development of plans, policies and guidelines, which boards must establish to support bullying prevention and intervention in schools.

Context

Bullying prevention and intervention occurs within a broader system of actions to strengthen human rights and equity within education.

The requirements for bullying prevention and intervention intersect with other requirements for school boards, particularly Policy/Program Memorandum (PPM) No. 119, “Developing and implementing equity and inclusive education policies in Ontario schools,” PPM No. 120, “Reporting violent incidents to the Ministry of Education,” PPM No. 128, “The provincial code of conduct and school board codes of conduct,” and PPM No. 145, “Progressive discipline and promoting positive student behaviour.”

In addition to specific policy and legislative requirements, bullying prevention and intervention will intersect with other ongoing actions which may include strategies and policies that promote mental health, well-being and equity, parental ^{footnote 2[2]} outreach and engagement and learning that takes place throughout the curriculum.

School communities are well positioned to respond to all forms of bullying, educate students on bullying prevention, promote healthy relationships, notice troubling changes in behaviour, address instances of bullying, and connect with students.

Understanding bullying and cyber-bullying

Bullying is behaviour that can be repeated or occur one time and can be carried out by an individual or group of individuals.

Bullying can occur in situations where there are real or perceived power imbalances between individuals or groups, and may be a symptom of racism, classism, homophobia, sexism, religious discrimination, ethnic discrimination or other forms of bias and discrimination. Bullying can also be based on, but not limited to, body size, appearance, abilities, or other real or perceived factors. Perceptions about differences are often based on stereotypes perpetuated in broader society.

Bullying, including cyber-bullying, may be intentional or unintentional, direct or indirect. It can take many forms including physical (for example, pushing, tripping), verbal (for example, name calling, insults, threats, sexist/racist/transphobic comments), social, also known as relational (for example, spreading rumours, intentionally excluding others, humiliating others with public gestures) and causing harm to one’s property.

Taking action against bullying behaviour requires school staff to consider the root cause(s) and identify the most effective interventions.

Bullying has the potential to:

• negatively affect students’ learning, attendance, safety/sense of safety, sense of self-worth and overall mental health and well-being
• create a negative environment at school or school-related activities for an individual, group or the whole school

Proactive intervention coupled with coaching and support can help all students develop the skills and understanding needed to build and maintain positive relationships.

Bullying impedes the development of a positive school climate^{footnote 3[3]}. A whole-school approach^{footnote 4[4]} involving all education and community members is required to prevent bullying.

Cyber-bullying

Cyber-bullying is the act of engaging in bullying behaviors through electronic means such as social media platforms, email, text or direct messaging, digital gaming and/or communication applications.

Examples of cyber-bullying may include:

• sending or sharing hateful, insulting, offensive, and/or intimidating electronic communication or images via text messages, emails, direct messages
• revealing information considered to be personal, private, and sensitive without consent
• making and/or engaging, and/or participating in fake accounts on social networking sites to impersonate, humiliate and/or exclude others
• excluding or disrupting access to, a student on purpose from online chat groups, access to accounts and during digital gaming sessions

Increasing the use of digital platforms enhances the threat of cyber-bullying as well as other safety risks.

Bullying, including cyber-bullying, may intersect with other forms of sexual exploitation including, but not limited to, sextortion and the non-consensual sharing of intimate images. Traffickers and other sexual predators are increasingly using fake accounts to pose as acquaintances or friends of children and youth to lure, groom and recruit them into engaging in sexual acts or services. Children and youth who experience bullying are at increased risk for being sex trafficked^{footnote 5[5]}.

School board bullying prevention and intervention plan

Every school board must establish a plan for schools that integrates all the board’s requirements and guidelines regarding bullying prevention and intervention into a comprehensive and achievable plan. Every board must require that all schools implement this plan^{footnote 6[6]}.

School boards must make their plan available to the public either on the school board’s website, or if the board does not have a website, make their plan available in another appropriate manner. Principals are also responsible for making their school’s plan available to the public.

School boards must also review their plans periodically (for example, at least once every two years) and must solicit the views of those identified below when reviewing their plan.

Developing bullying prevention and intervention plans, policies and guidelines

In developing both the plan, and policies and guidelines, the board must ensure that they are consistent with the requirements of:

• this PPM
• PPM No. 119, “Developing and implementing equity and inclusive education policies in Ontario schools”
• PPM No. 120, “Reporting violent incidents to the Ministry of Education”
• PPM No. 128, “The provincial code of conduct and school board codes of conduct”
• PPM No. 145, “Progressive discipline and promoting positive student behaviour”
• Ontario curriculum policy
• all applicable legislation,^{footnote 7[7]} including the Municipal Freedom of Information and Protection of Privacy Act, Ontario Human Rights Code, Accessibility for Ontarians with Disabilities Act, Education Act and regulations made under the Education Act

In developing both the plan, and policies and guidelines, the board must also solicit the views of students, teachers, other staff such as principals^{footnote 8[8]}, volunteers working in the schools, parents of the students, school councils and the public^{footnote 9[9]}.

It is recommended that, in developing the plan, school boards also consult with:

• their Special Education Advisory Committee
• their Indigenous Education Council
• social service agencies
• mental health agencies
• local Children’s Aid Societies
• Indigenous child and family well-being agencies and other community partners as appropriate
• school boards may also choose to consult with their Parent Involvement Committee

It is recommended that, in developing policies and guidelines, school boards also:

• draw upon evidence-informed practices that promote positive student behaviour
• align with strategies and initiatives outlined in related ministry documents, including resources such as:
  • Caring and Safe Schools in Ontario
  • Ontario’s Equity and Inclusive Education Strategy
  • Ontario First Nation, Métis and Inuit Education Policy Framework
  • English Language Learners: ESL (English as a Second Language) and ELD (English Literacy Development) programs and services
• consider local needs and circumstances, such as geographical considerations, demographics, language and cultural needs, equity and inclusion factors and the availability of board and community supports and resources
• consult with their legal counsel and freedom of information coordinators to ensure that they are fulfilling their legal responsibilities

School board bullying prevention and intervention components and implementation strategies

The following components must be incorporated as part of each school board’s plans, policies and guidelines for bullying prevention and intervention.

1. Policy statement

School board policies must include the following statements:

• bullying adversely affects a student’s well-being and ability to learn
• bullying adversely affects the school climate, including healthy relationships
• bullying, including cyber-bullying, is a serious issue and is not acceptable in the school environment (including virtual), in a school-related activity, or in any other circumstances that will have an impact on the school climate

2. The definition of bullying

For the purposes of policies on bullying prevention and intervention, school boards must use the definition of bullying^{footnote 10[10]}, given in subsection 1(1) of the Education Act. The definition of bullying includes cyber-bullying, as such, all requirements identified under the Education Act and under this policy/program memorandum related to bullying also apply to cyber-bullying.

3. Engaging parents and families

Parents play a critical role in the lives of students. It is vital that all those involved in schools are confident with the measures in place to protect students from harm.

School board bullying prevention and intervention policies must include:

• a culturally relevant and accessible communication and outreach strategy taking into account linguistic, ethnocultural and accessibility considerations to help ensure parents have access to the board bullying prevention and intervention policy and plan including:
  • information on who to contact if parents have questions or concerns
  • how parents can access more information about bullying prevention and reporting
  • a clear path for parents to follow should they need to report bullying including:
    • where a parent can file a report and with whom
    • what steps will be taken following a report made by a parent
    • a process a parent can follow if they are not satisfied with the school's response

In addition, school boards must:

• establish ongoing processes to meaningfully engage parents so that they feel heard and are valued partners in their children’s education
• assess how well parents understand their roles and responsibilities with respect to policies and practices related to bullying prevention, including cyber-bullying prevention
• adjust practices as necessary to address any barriers that might prevent parents from understanding their roles and responsibilities
• make every effort to provide access to appropriate board resources/publications for parents

4. Notifying parents

Following a serious incident, the principal must notify parents of the involved students, except in certain circumstances, and must invite the parents to discuss supports for their child. Refer to the requirements for notifying parents outlined in Section 6 of PPM No. 145, “Progressive discipline and promoting positive student behaviour.” Bullying, including cyber-bullying, is an instance of a serious student incident.^{footnote 11[11]footnote 12[12]}

5. Prevention and awareness raising

School board bullying prevention and intervention policies must include a comprehensive prevention and awareness-raising strategy that includes expectations for appropriate student behaviour. This strategy will intersect with the school code of conduct and the associated requirements highlighted in PPM No. 128, “The provincial code of conduct and school board codes of conduct.”^{footnote 13[13]}

It is recommended that school board policies also:

• include teaching strategies that support the school-wide bullying prevention policies
  • developing skills for healthy relationships by including bullying prevention strategies and highlighting equity and inclusive education principles in daily classroom instruction and school activities
• require that opportunities be made available for students and staff to learn to recognize the various forms of bullying (such as, racial bullying, or bullying based on religion) and understand the actions that can be taken by those witnessing the behaviour
• require that opportunities be made available for students and staff to participate in equity and inclusive education, bullying prevention, and leadership initiatives within their own school

6. Programs, interventions and other supports

School board bullying prevention and intervention policies must:^{footnote 14[14]}

• include a comprehensive strategy to address incidents of bullying, including appropriate and timely responses
• require that programs, interventions, and other supports be made available for students who have been bullied, witnessed incidents of bullying, or engaged in bullying
  • may be provided by social workers, psychologists, community members (such as elders) or other professionals who have training in similar fields, as determined by the school board (such as, child and youth counsellors)
  • may be provided by school-based employees of the board, through board programs and resource personnel, or through community-based service-providers
  • should be curriculum-linked, consistent with a bias-free progressive discipline approach, and consider mitigating and other factors that influence behaviour
  • should be provided from a range of resources – from early prevention to more intensive interventions in cases of persistent bullying, with possible referral to community-based service providers
• include procedures to allow students to report bullying incidents safely and in a way that will minimize the possibility of reprisal
  • these procedures should define the responsibilities and roles of the principal, teachers, other school staff, parents and students
• as per PPM No. 145, “Progressive discipline and promoting positive student behaviour,” outline what schools are required to do to support students, including the development of specific plans to protect students who have been harmed and outline a process for parents to follow if they are not satisfied with those supports

Boards must ensure that all their employees take all allegations of bullying, including cyber-bullying, seriously and act in a timely, sensitive and supportive manner when responding to students who disclose or report bullying incidents.

Boards must ensure that all their employees who work directly with students – including administrators, teachers and other school staff – respond to any student behaviour that is likely to have a negative impact on the school climate if, in the employee’s opinion, it is safe to respond to it. Such behaviour includes bullying and all inappropriate and disrespectful behaviour that occurs at any time at school and at any school-related event, including virtual learning environments.

Boards must ensure that for students with special education needs, interventions, supports and consequences are consistent with the child’s strengths and needs, as well as with the program goals and learning expectations documented in their Individual Education Plan (IEP). Ongoing intervention and support may be necessary to promote and sustain positive student behaviour.

7. Reporting to the principal

Serious student incidents must be reported to the principal so that appropriate actions to address the incident and protect the student may be taken. Please refer to the requirements for reporting and responding to serious incidents as outlined in Section 8 of PPM No. 145. The reporting form to be used is also in the appendix of PPM No. 145, “Progressive discipline and promoting positive student behaviour.” Bullying, including cyber-bullying, is an instance of a serious student incident.

If an incident is violent, boards must follow the direction in the Provincial Model for a Local Police/School Board Protocol (2015) regarding notification of the police^{footnote 15[15]}.

8. Suspensions and expulsions for bullying

Boards should ensure alignment of policies related to suspensions and expulsions with Ontario Regulation 440/20: Suspension of Elementary School Pupils.

Junior Kindergarten to Grade 3

A regulation^{footnote 16[16]} came into effect in 2020 to eliminate discretionary suspensions for students in junior kindergarten to grade 3. Incidents of bullying involving students from junior kindergarten to grade 3 should be addressed with the appropriate positive behaviour supports in the school setting.

Principals must suspend students in junior kindergarten to grade 3 for incidents of bullying^{footnote 17[17]} if:

• their continuing presence in the school creates an unacceptable risk to the safety of another person
• the bullying is motivated by bias, prejudice, or hate based on race, national or ethnic origin, language, colour, religion, sex, age, mental or physical disability, sexual orientation, gender identity, gender expression or any other similar factor (for example, socio- economic status, appearance) 

The principal may only suspend a student in junior kindergarten to grade 3 under section 310 of the Education Act for engaging in bullying if they have conducted an investigation respecting the allegations.

Grades 4 to 12

Under the Education Act, principals must suspend a student between grades 4 to 12 for bullying and, after an investigation, consider referring that student for expulsion if:

• the student has previously been suspended for bullying; and the student’s continuing presence in the school creates an unacceptable risk to the safety of another person
• the bullying is motivated by bias, prejudice, or hate based on race, national or ethnic origin, language, colour, religion, sex, age, mental or physical disability, sexual orientation, gender identity, gender expression, or any other similar factor

9. Professional development strategies for administrators, teachers and other school staff

School boards must:

• establish and provide annual professional development programs to educate teachers and other staff about bullying prevention and strategies for promoting a positive school climate^{footnote 18[18]}
• put in place curriculum-linked culturally responsive and relevant pedagogy training strategies on bullying prevention and intervention to provide administrators, teachers, and other school staff the resources and support they need to disrupt and dismantle systemic barriers and to address all forms of bullying

School boards may also make resources available to other adults who have significant contact with students (for example, school bus operators/drivers, volunteers). School boards should also recognize the ongoing need to support training for new teachers.

10. Communications and outreach strategies

School boards must actively communicate their policies and guidelines on bullying prevention and intervention to principals, teachers, and other school staff, students, parents, their Special Education Advisory Committee, their Indigenous Education Council, school councils and school bus operators and drivers.

School boards should also provide this information to their School Council, Parent Involvement Committee, Equity Steering Committees and other appropriate community partners. It is important that the roles and responsibilities of all members of the school community (such as, principals, teachers, other school staff, students, parents) be clearly articulated and understood.

11. Monitoring and review

School boards must monitor, review and evaluate the effectiveness of board policies and guidelines, using indicators established in consultation with teachers, other school staff, students, parents and school councils.

To support this review process, school boards must develop or enhance existing strategies and processes to track and monitor all instances of reported bullying, including cyber-bullying, to guide and inform school and board strategic planning.

At least once every two years each school board must conduct anonymous school climate surveys of students, staff, and parents. Please refer to prevention and awareness raising requirements outlined in Section 2 of PPM No. 145, “Progressive discipline and promoting positive student behaviour.”

School boards are also required to collect and analyze data on the nature of violent incidents to support the development of board policies and to inform board and school improvement plans. Please refer to PPM No. 120, “Reporting violent incidents to the Ministry of Education.”

Safe and accepting schools teams

Boards must ensure that schools have in place a Safe and Accepting Schools Team responsible for fostering a safe, inclusive and accepting school climate that must be chaired by a staff member and include the principal, at least one parent, teacher, non-teaching staff member or community partner. It should also include at least one student.

The requirement for the Safe and Accepting Schools Team can be fulfilled by an existing school committee (for example, the healthy schools committee).