Report On Consideration Of The Sexual Offences (amendment) Bill (national Assembly Bill No. 78 Of 2023)

REPUBLICOFKENYA

THENATIONALASSEMBLY THIRTEENTHPARLIAMENT-FOURTHSESSION-2025

DIRECTORATEOFDEPARTMENTALCOMMITTEES

DEPARTMENTALCOMMITTEEONJUSTICEANDLEGALAFFAIRS

REPORTON:

THECONSIDERATIONOFTHESEXUALOFFENCES (AMENDMENT)BILL,2023

(NATIONALASSEMBLYBILLNO.78OF2023)

CLERK'SCHAMBERS DIRECTORATEFDEPARTMENTALCOMMITTEES PARLIAMENTBUILDINGS NAIROBI

OCTOBER2025

TABLEOFCONTENTS

| TableofContents.. | TableofContents.. | |-------------------------------------------------------------------|-------------------------------------------------------------------| | ListofAbbreviationsandAcronyms ji | ListofAbbreviationsandAcronyms ji | | ListofAnnexures.. ili | ListofAnnexures.. ili | | Chairperson'sForeword. Iv | Chairperson'sForeword. Iv | | CHAPTERONE | CHAPTERONE | | 1.1 | EstablishmentoftheCommittee | | 1.2 | MandateoftheCommittee... | | 1.3 | Committee Membership. | | 1.4 | CommitteeSecretariat... | | CHAPTERTWO 5 | CHAPTERTWO 5 | | 2 OverviewoftheSEXUALOFFENCES(Amendment)Bill(NATIONALASSEMBLYBILL | 2 OverviewoftheSEXUALOFFENCES(Amendment)Bill(NATIONALASSEMBLYBILL | | NO.78OF2023) 5 | NO.78OF2023) 5 | | 2.1 | Background 5 | | 2.2 | SummaryoftheBill 5 | | CHAPTERTHREE. | CHAPTERTHREE. | | 3 PublicParticipation andStakeholderEngagementontheBill | 3 PublicParticipation andStakeholderEngagementontheBill | | 3.1 | Legal Framework on PublicParticipation.. | | 3.2 | MemorandaReceivedon theBill.. | | CHAPTERFOUR | CHAPTERFOUR | | | CommitteeObservations. | | CHAPTERFIVE 10 | CHAPTERFIVE 10 | | 5 | CommitteeRecommendations 10 |

LISTOFABBREVIATIONSANDACRONYMS

KNCHR

Kenya National CommissiononHumanRights

OAG

Officeof theAttorneyGeneral

ODPP

OfficeoftheDirectorofPublicProsecutions

NGEC

National GenderforEqualityCommission

COG

Council of County Governors

KLRC

Kenya LawReform Commission

LSK

LawSocietyofKenya

MCA

Member of CountyAssembly

MCCP

Maendeleo Chap Chap Party

MP

MemberofParliament

NADCO

NationalDialogueCommittee

ORPP

Officeof theRegistrarofPolitical Parties

ODM

OrangeDemocraticMovement

TAA

TheArchitectsAlliance

UDA

UnitedDemocraticAlliance

UDM

UnitedDemocraticMovement

WDM

WiperDemocraticMovement

LISTOFANNEXURES

AnnexureI:AdoptionSchedule

Annexure2:Minutes

Annexure 3:The Sexual Offences (Amendment) Bill (National Assembly Bill No. 78 of 2023)

Annexure 4:Advertisement inviting the public to submit memoranda on the Bill

Annexure5:Letterfrom theClerkof theNationalAssembly invitingstakeholdersto attendthepublicparticipationforum

Annexure6:MemorandabyStakeholders

CHAIRPERSON'SFOREWORD

This Report contains the proceedings of the Departmental Committee on Justice and Legal Affairs onits consideration of the SexualOffences(Amendment)Bill,2023(National AssemblyBillNo.78of2023).TheBill,wasreadaFirstTimeintheHouseon31July,2024 andwas thereaftercommitted totheCommitteeinlinewithStandingOrder127(l)of the National AssemblyStanding Orders.

TheBillseekstoamend theSexualOffencesAct(Cap.63A)toprovideforpromotionof national public awareness of sexual offences.Further,theBill mandates the CabinetSecretary to education of victims of sexual offences, including victims of teenage pregnancies. Finally, the Billprovides for the definition ofaCabinetSecretarysoas toalign theActwith the Constitution.

In compliancewith ArticleI18(b)of the Constitution and StandingOrder127(3)of the National Assembly Standing Orders, the Committee placed an advertisement in the print media on 9h August, 2024 inviting the public to submit memoranda by way of written statementsontheBill.Thememorandaweretobereceivedonorbefore23rAugust,2024 at5.00 pm(East African Time).

In addition, the Committee vide letters Ref. No. NA/DDCIJLAC/2024l072 dated 23rd September 2024 and Ref. No. NA/DDCIJLAC/2025/010 dated 27th February 2025 invited key stakeholders to submit views on the Bill and attend a public participation forum on 8th October,2024 and 6h March 2025,respectively.Vide a letter Ref.No.NA/DDCILAC/2025/012 dated 4th March 2025, the Committee requested the Stakeholders to share their written memorandaby12tMarch2025.

Bythecloseofthesubmissiondeadline,theCommitteehadreceivedeight(8)memoranda. UraiaTrust,theState Department for BasicEducation,theStateDepartment for Medical Services,Kituo cha Sheria,the Office of the Director of Public Prosecutions,the Kenya National Commission onHumanRights,Office of the AttorneyGeneral &Departmentof Justice and the National Gender and Equality Commission gave their views on the Bill which theCommitteeconsidered ascontained inChapterThreeof thisReport.

TheCommittee isgrateful to theOfficesof theSpeaker andClerkof theNational Assembly for the logistical and technical support accorded to it during its consideration of the Bill. The CommitteefurtherwishestothankUraiaTrust,theStateDepartmentforBasicEducation, theStateDepartmentfor Medical Services,Kituo cha Sheria,the Office of the Director of Public Prosecutions,the Kenya National Commission on Human Rights,Office of the AttorneyGeneral &Departmentof Justice and theNational GenderandEqualityCommission HonourableMembersoftheCommitteeandtheCommitteeSecretariatwhomadeuseful contributionstowardsthepreparation andproductionofthisReport.

Onbehalfof theDepartmental Committee on Justiceand LegalAffairs andpursuanttothe provisions of Standing Order I99(6) of the National Assembly Standing Orders, it is my pleasant privilege and honour topresent to thisHouse theReport of the Committee on its considerationof theSexual Offences(Amendment)Bill,2023(National AssemblyBill No.78 of 2023).

It ismy pleasure to report that the Committeehas consideredSexual Offences(Amendment) Bill,2023(National Assembly Bill No.78of 2023) andhas thehonour toreportback to the National Assembly with the recommendation that the House approves the Bill with amendments.

mmm

Hon.George GitongaMurugara,CBS,MP Chairman,DepartmentalCommitteeonJusticeandLegalAffairs

PREFACE

1.1 EstablishmentoftheCommittee

• I. TheDepartmental Committee on Justice and Legal Affairs is one of twenty departmental committeesoftheNationalAssemblyestablishedunderStandingOrder2l6whose mandatepursuanttotheStandingOrder216(5)isasfollows:

2. i.To investigate,inquire into, and report on all matters relating to the mandate, management, activities,administration,operations andestimatesof the assigned ministriesanddepartments; 3. 1l. To study the programme and policy objectives of ministries and departments and the effectivenessoftheimplementation; 4. Ii. To,onaquarterlybasis,monitor andreportontheimplementationofthenationalbudget inrespectofitsmandate; 5. iv.Tostudyandreviewall legislationreferredtoit; 6. v.Tostudy,assess and analysetherelativesuccess oftheministriesanddepartmentsas measuredby the results obtained as compared with theirstated objectives;

• vi. Toinvestigateandinquireintoallmattersrelatingtotheassignedministriesand departmentsastheymaydeemnecessary,andasmaybereferredtothembytheHouse;
• vii. TovetandreportonallappointmentswheretheConstitutionoranylawrequiresthe National Assembly to approve, except those under Standing Order 204(Committee on Appointments);
• vii. i.Toexaminetreaties,agreementsandconventions;

10. ix.To make reports and recommendations to the House as often as possible,including 11. x.To consider reports of Commissions and Independent Offices submitted to theHouse pursuanttotheprovisionsofArticle254of theConstitution;and 12. xi.Toexamine any questions raisedby Members on amatterwithin itsmandate.

1.2MandateoftheCommittee

• 2.In accordance with the Second Schedule of the Standing Orders, the Committee is mandated to consider:-
• (a) The Judiciary;
• (c) Access to Justice;
• (b) Tribunals;
• (d)Publicprosecutions;
• (e) Ethics, Integrity and Anti-corruption;
• Correctional services;
• (g) Communityservice orders andwitnessprotection;
• (h) )ConstitutionalAfairs;
• 1 Sovereign immunity;
• (k) Human rights;
• (i) Elections including referenda;
• (l)Political parties; and
• (m)The State Law Office' including insolvency, law reform, public trusteeship, marriagesandlegaleducation.

3. In executing its mandate, the Committee oversights the following Ministries,Departments andAgencies:

• (a) The Judiciary;
• (b) Judicial Service Commission;

CHAPTERONE

• (c) State Department of Correctional Services;
• (d)StateDepartment ofJustice,HumanRights and Constitutional Affairs;
• (e)State LawOffice and Department of Justice
• (g) Ethics and Anti-Corruption Commission;
• (f)Office of the Director of PublicProsecutions;
• (h) Independent Electoral and Boundaries Commission;
• (i) Office of the Registrar of Political Parties;
• (i) Commission on Administrative Justice;
• (k) Witness Protection Agency;
• (l)Kenya National Commission on Human Rights;
• (m)Kenya LawReform Commission;and
• (n) Council of Legal Education.

1.3 Committee Membership

4. TheCommitteecomprisesthefollowingMembers:

Chairperson

UDA Party

Hon. Murugara George Gitonga, CBS, MP Tharaka Constituency

Vice-Chairperson

Hon.MutuseEckomasMwengi,OGW,MP Kibwezi West Constituency MCCP Party

Hon. Gladys Boss, MGH, MP Uasin Gishu Constituency UDA Party

Hon. Onyiego Silvanus Osoro, CBS, MP South Mugirango Constituency UDA Party

Hon.Wetang'ulaTimothyWanyoyi,CBS,MP WestlandsConstituency ODM Party

Hon.Muchira Michael Mwangi, MP Ol JorokConstituency UDA Party

Hon.MakaliJohnOkwisia,MP Kanduyi Constituency FORD-Kenya

Hon. Aden Daud, EBS, MP Wajir East Constituency Jubilee Party

Hon.CPA Suleka Hulbale Harun,MP NominatedMember UDM Party Hon. Maalim Farah, EGH, MP Dadaab Constituency WDM-Kenya Hon. Francis Kajwang' Tom Joseph, CBS, MP Ruaraka Constituency ODM Party Hon.(Dr.)OtiendeAmollo,SC,EBS,MP Rarieda Constituency ODM Party Hon.Muchangi Karemba,MP Runyenjes Constituency UDA Party Hon. Mogaka Stephen M., MP WestMugirango Constituency Jubilee Party Hon. Siyad Amina Udgoon, MP Garissa County (CWR) Jubilee Party

1.4 CommitteeSecretariat

5. TheCommitteeisfacilitatedbythefollowingstaff:

Mr.AhmedSalimAbdalla

ClerkAssistantI/HeadofSecretariat

Mr.RonaldWalala

Mr.AbdikafarAbdi ClerkAssistantIIl

Senior Legal Counsel

Ms. Jael Ayiego ClerkAssistant III

Mr.Isaac Nabiswa Legal Counsel II

Mr.OmarAbdirahim Fiscal Analyst I

Ms. Vivienne Ogega ResearchOfficerIll

Mr.John Nduaci

Mr.MeldrickSakani AudioOfficerIII

Serjeant-At-Arms

Ms. Mary Kamande PublicCommunicationsOfficerIll

Mr. Calvin Karung'o MediaRelationsOfficerIll

Mr. Silas Opanga Hansard Reporter Ill

CHAPTERTWO

2 OVERVIEWOFTHE SEXUALOFFENCES(AMENDMENT)BILL,2023 (NATIONALASSEMBLYBILLNO.78OF2023)

2.1 Background

6. TheBillseekstoamendtheSexualOffencesAct(Cap.63A)toprovideforpromotionof nationalpublicawarenessofsexualoffences.Further,theBillmandates theCabinet promote the rights to education of victims of sexual offences, including victims of teenage theActwiththeConstitution. 7. The Bill was read a First Time in the House on 31s July,2024 and was thereafter committedtotheCommitteein linewithStandingOrderI27(l)of theNationalAssembly Standing Orders.

2.2 SummaryoftheBill

8. TheBill seeks to amend theSexual Offence Act(Cap.63A)as follows: 2. (a) Clause 2 of the Bill proposes a definition of the Cabinet Secretary so as to align it with theConstitution. 3. Secretary"toalign theActwiththeConstitution. 4. (c)Clause7of theBill seekstointroduce a newsection46Atoprovideforpromotion ofnationalpublic awarenessofsexualoffences throughnationwideeducationand information campaigns. Further, the Bill proposes that the Cabinet Secretary responsibleforlegalaffairsinconsultationwiththeCabinetSecretaryresponsiblefor education to establishprograms to safeguard,protect andpromote theright to education ofvictims of sexual offences includingvictims of teenagepregnancies. 5. (d) Clause 8 of the Bill proposes to substitute the term"Minister"with"Cabinet Secretary"toaligntheActwiththeConstitution.

CHAPTERTHREE

3PUBLICPARTICIPATIONANDSTAKEHOLDERENGAGEMENTON THEBILL

3.1Legal Framework onPublicParticipation

"Parliamentshallfacilitatepublicparticipationandinvolvementinthelegislativeandother businessofParliamentanditsCommittees."

• 9.Article I18 (1)(b) of the Constitution provides that:
• 10.The National Assembly Standing Order I27 (3) and (3A) stipulates that:
• "(3)TheDepartmental Committee towhichaBillis committedshallfacilitatepublic
• (a)invitingsubmissionofmemoranda;
• (b)holding publichearings;
• (c)consulting relevant stakeholders inasector;and
• (3A)TheDepartmental Committeeshalltakeintoaccounttheviewsandrecommendations of the public under paragraph (3) in its report to the House."
• (d)consulting experts on technical subjects.

3.2MemorandaReceivedontheBill

• I1.Pursuant to the aforementioned provisions of the law,the Committee placed an advertisement (Annexure 4) in the print media on Friday 9thAugust, 2024 inviting the public tosubmitmemorandabywayofwrittenstatementsontheBillonorbefore23rdAugust 2024at5.00pm(EastAfricanTime).

12. Further, the Committee vide letters Ref. No. NA/DDClLAC/2024/072 dated 23rd September2024andRef.No.NA/DDClJLAC/20251010dated27thFebruary2025invited key stakeholders to submit views on the Bill and attend a public participation forum on 8th October, 2024 and 6th March 2025, respectively. Vide a letter Ref. No. NA/DDClJLAC/2025/012dated4hMarch2025,theCommitteerequestedtheStakeholders to share their written memoranda by 12th March 2025(Annexure 5).

• 13.The Committeereceived eight(8)memorandafromUraia Trust,theStateDepartment forBasic Education,the State Departmentfor Medical Services,Kituo cha Sheria,the Officeof theDirectorofPublicProsecutions,theKenyaNational CommissiononHuman Rights,Officeof theAttorneyGeneral &Departmentof Justiceand theNational Gender andEqualityCommission.Thememorandaare annexedtothisreport asAnnexure 6.
• 14.StateDepartmentforMedicalServicesandODPPsubmittedmemorandainfullsupport oftheBillwhileUraia,KNCHR,OAG,KituiChaSheria,NGECandtheStateDepartment for the Basic Education submittedmemoranda with proposed amendments.The stakeholderssubmittedasfollows:

Clause2

• 15.KNCHRsubmitted that the definitionof the term"CabinetSecretary"be substituted withCabinetSecretary"means theCabinetSecretaryforthe timebeingresponsiblefor matters relating to interior and national administration or"Cabinet Secretary"means the Cabinet Secretary for the time being responsible for matters relating to Gender, Culture, the Arts and Heritage. KNCHR observed that the Executive Order No. 2 of 2023 on OrganizationofGovernmentofKenyahasnotspecifiedthemandateholder for the

CabinetSecretaryroleformattersrelatingtojustice.KNCHRalsoobservedthatvarious caselawshaveheldthattheAttorney-GeneralisnotaCabinetSecretaryandtherefore legislation.

16. OAGsubmittedthedeletionandsubstitutionoftheterm"CabinetSecretary"with CabinetSecretaryforthetimebeingresponsibleformattersrelatedtoGender.TheOAG noted that theStateDepartmentfor Gender andAffirmativeAction isbetterequipped to oversee thecoordinationofeffortsrelatedtosexual andgender-basedviolence(SGBV)

CommitteeObservation

17. TheCommitteeobservedthattheSexualOffencesActdefinestheterm"Cabinet Secretary"as theCabinetSecretaryforthetimebeingresponsibleforlegal affairsand of theDirector ofPublicProsecutions andnot a CabinetSecretary.Therefore,the amendmentseekstoalignthedefinitionof"CabinetSecretary"withtheprovisionsof the ConstitutionofKenya,20l0.Further,theCommitteeobservedthattheSexualOffences Actplacesother obligations of theCabinetSecretaryfor the timebeingresponsiblefor legalaffairssuchasdevelopinganationalframeworktoguidetheimplementationand administrationof theAct.Thesefunctionshavebeensufficientlyperformeddespitethere beingnodesignatedCabinetSecretaryresponsibleforlegal affairs.

Clause7

18. UraiaTrustsubmitted that theproposednew46A lacksspecificity thatcomeswith the provision.They submitted that there is need to have types ofpractical programs that are tobe implemented in the public awareness campaign within the proposed amendment legislation. 2. 19.The State Department for the Basic Education proposed the deletion of the proposed new section 46A(1)(b) since the promotion of the right to education is the role of the CabinetSecretary responsibleformattersrelatingto education.Further,theynoted the Ministry of Education has developed various policies and guidelines to promote the right to education of victims of sexual offences includingvictims of teenage pregnancy. 20. KituochaSheriaproposedamendmentstothenewsection46Atoincludethatthe Cabinet Secretary shall promote comprehensive public awareness on reproductive health, includingsexualoffences,throughnationwide education andinformationcampaigns;and theestablishmentandimplementationofprogramsthatsafeguard,protectandpromote the educational rights and accessof victims of sexual violence,includingteenage pregnancy. 4. 21.KNCHR proposed the addition of a new sub-clause 46A(1)(c) that provides that the CabinetSecretaryshall,in consultationwiththeCabinetSecretaryresponsibleformatters and policy actions for sexual offences within institutions of learning. 22. NGEC proposed amending the proposed new section 46A toinclude the Cabinet

CommitteeObservation

• 23.TheCommittee observed that theproposed newsection46Agives theCabinetSecretary theresponsibilityofpromotingpublicawarenessonsexualoffences and,inconsultation with the Cabinet Secretary responsible for education, establishing programs to safeguard therighttoeducationofvictimsofsexualoffences.TheMinistryofEducationis responsiblefor designingandimplementingpoliciesontherighttoeducation.Therefore, thisrolemaybelefttotheMinistryofEducationtoavoidinstancesofoverlappingof functions.

Otherproposed amendmentstotheSexual OffencesAct

24. Uraia Trust proposed amendments to the definition of the terms"child"and"consent". For the term"child", they proposed the adoption of the definition contained in Article providedfor in the interpretationsection. 25. KNCHRproposed amendments on the followingissues- 3. (b)recognizingadolescentconsensualsex; 4. (a) encompassing the experiences and needs of all individuals beyond the binary gender identities such as intersex persons; 5. (c)sexual harassment and other forms of violence against women in public spaces otherthanworkplaces; 6. (d)forensictracking system/sexualassault forensicevidence tracking system examinationkits; 7. (e) implied consent to sexual activity; 8. (f)criminalization of out-of-court settlements in sexual offence cases; and 9. (g)establishmentofSGBVcourts.

CommitteeObservation

26. The Committee observed that some of the proposed amendments are progressive with respecttosexualoffences.However,inclusionof theproposalswouldundulyexpanded thescopeoftheBill.Theproposalsmaybeconsideredforintroduction ina separate amendmentBilltoallowexhaustivepublicparticipation.

CHAPTERFOUR

4COMMITTEEOBSERVATIONS

27. Upon reviewing the Bill and the submissions received, the Committee made the following observations: 2. (1)TheBillseekstoamend theSexualOffencesAct(Cap.63A)tomandate theCabinet awareness of sexual offences.Further,the Bill mandates the Cabinet Secretary,in consultation with the Cabinet Secretary responsible for education,to establish programs to safeguard, protect and promote the right to education of victims of sexual offences,includingvictims of teenagepregnancies. 3. (2)TheBillprovidesforthedefinitionof aCabinetSecretarytoalign theActwiththe Constitution.The Committee observed that the change from"Minister"to"Cabinet Secretary"hasalreadybeeneffectedbytheAttorney-General throughthepowerto reviselawsconferred by theRevision of Laws(Cap.I).Inaddition,inthecurrent Prosecutions and not a Cabinet Secretary.

• (3) The establishment of programs to safeguard and promote the right to education is vital in ensuring inclusive and equitable quality education for every child. However, the Committeenoted thatitis theMinistryof Education thatisresponsibleformaking and implementing policies on the right to education including programs to safeguard, protect and promote the right to education of victims of sexual offences including victims of teenage pregnancies.

5. (4)TheBill is essential in thepromotion ofpublicawarenessonsexual offences.It willbe instrumental inpreventing and combating sexual abuse against children,sexual violence and exploitation.

CHAPTERFIVE

5 COMMITTEERECOMMENDATIONS

28. The Committee,having considered the Sexual Offences (Amendment) Bill (National AssemblyBill No.78of2023)and thesubmissions frommembersof thepublicand stakeholders,recommends that the House approves the Bill with amendments as contained in theSchedule of Amendments.

HON.GEORGEGITONGAMURUGARA,CBS,MP CHAIRMAN DEPARTMENTALCOMMITTEEONJUSTICEANDLEGALAFFAIRS

THENATIONALASSEMBLY 13THPARLIAMENT(FOURTHSESSION)-2025 JUSTICEANDLEGALAFFAIRSCOMMITTEE

ADOPTIONSCHEDULE

Adoption of the Report on the consideration of the Sexual Offences (Amendment) Bill, (NA Bill No. 78 of 2023) sponsored by Hon.Donya Aburi, MP

| No. | HON MEMBER | SIGNATURE | |-------|----------------------------------------------------|-------------| | 1. | HON.MURUGARAGEORGEGITONGA,CBS,MP- Chairperson | | | 2. | HON.MUTUSE ECKOMAS MWENGI,OGW,MP- Vice Chairperson | | | 3. | HON.GLADYS BOSS.MGH,MP | | | 4. | HON.MAALIMFARAH,EGH,MP | | | 5. | HON.FRANCISKAJWANG'TOMJOSEPH,CBS,MP | | | 6. | HON.ONYIEGOSILVANUSOSORO,CBS,MP | | | 7. | HON.(DR.)OTIENDEAMOLLO,SC,EBS,MP | | | 8. | HON.WETANGULATIMOTHYWANYONYI,CBS, MP | | | 9. | HON.MUCHIRAMICHAELMWANGI,MP | | | 10. | HON.ERICMUCHANGIKAREMBA,MP | | | 11. | HON.ADENDAUD,EBS,MP | | | 12. | HON.MAKALIJOHNOKWISIA,MP | | | 13. | HON.MOGAKASTEPHENM,MP | uou | | 14. | HON.SIYADAMINA UDGOON,MP | | | 15. | HON.CPASULEKAHULBABLEHARUN,MP | |