Violence against women in Canada is a public health crisis.[1] Violence, including intimate partner violence, can have profound long-term physical and physiological impacts on women and children across Canada. The healing process can take several years, as women experiencing violence can go through horrific experiences: “Women have been kicked out of their homes in the middle of the night with no shoes or boots in the winter; they've been beaten and left for dead; they've been choked and pursued as they fled for help.”[2] Violence is also a significant barrier to women’s full and equal participation in Canadian society and a significant financial burden for the country.[3]

Fleeing an abusive relationship takes strength and courage, as the moments after women and children flee an abusive relationship is the most dangerous time for them.[4] It is therefore crucial that housing options and support services be available so that women and children fleeing abusive relationships have somewhere safe to go. Some women who are in this situation may go to a shelter. However, accessing a bed in a shelter can be difficult: shelters are often operating at capacity and frequently turn away women and children because of a lack of space. As well, some communities do not have shelters for women and children experiencing violence; in this situation, women might have to travel to access shelter services. Some women might hesitate to go to a shelter; for instance, women living in small communities might hesitate to go to a shelter because word easily spreads in small communities. In addition, shelters and transition houses have difficulty offering a continuum of comprehensive support and services to women and children affected by violence because of a lack of funding. Lack of access to shelters and transition houses’ services can make the healing process difficult for women and children.

Recognizing the devastating effects of violence on women and children, as well as difficulties in accessing support and services, the House of Commons Standing Committee on the Status of Women (the Committee) agreed on 19 June 2018 to undertake a study on the network of shelters and transition houses serving women and children affected by violence against women and intimate partner violence. The Committee adopted the following motion:

That the Committee study, for the duration of eight meetings, the system of Transition houses and shelters serving women and children affected by violence against women and intimate partner violence; that the study include an examination of the current gap between need and available beds in shelters and transition houses; that the study include an examination of current federal programs and funding in support of shelters and transition houses; that the study consider possible solutions to address the gap between need and supply; that the Committee report its findings to the House; and that the Committee request a government response to its report.[5]

The Committee received testimony from 50 witnesses, seven of whom appeared as individuals, with the remainder representing 36 organizations. In addition, the Committee was briefed by officials from the Canada Mortgage and Housing Corporation, the Department of Employment and Social Development, the Department of Indian Affairs and Northern Development, the Office of the Co-ordinator, Status of Women,[6] and Statistics Canada. The testimony was received during 10 meetings held from 15 October 2018 to 3 December 2018. As well, the Committee received 53 briefs from organizations and individuals, along with speaking notes and follow-up responses to questions from Committee members. Appendix A includes a list of all witnesses and Appendix B includes a list of all submitted briefs.

The Committee’s report provides an examination of:

• 1) sources of funding available for shelters and transition houses;
• 2) challenges facing women and children affected by violence in accessing shelters and transition houses, such as factors preventing women from leaving abusive relationships, barriers impeding access to housing services and social support and services offered by shelters and transition houses; and
• 3) barriers facing women and children affected by violence when they leave the network of shelters and transition houses, including obstacles to accessing transitional housing, finding safe and affordable permanent housing, and owning a home.

The Committee’s report is intended to provide guidance to the Government of Canada on measures that could be implemented to help to address the gap between the supply and demand of beds in the network of shelters and transition houses that serve women and children affected by violence against women and intimate partner violence in Canada. Committee members greatly appreciate the contributions of witnesses who offered their knowledge, ideas and insights to the Committee during its study.

 

Intimate partner violence is one of the most prevalent forms of violence against women in Canada.[7] It includes any form of violence committed by a former or current spouse or dating partner or by any other intimate partner. Violence might occur during a relationship, while it is breaking down or after it has ended.[8] In many cases, “the most dangerous place for women is not in a back alley but in their own homes.”[9]

Reported rates of intimate partner violence have increased by 4% since 2014; they are the highest in Manitoba and Saskatchewan and in the three territories.[10] Many victims of intimate partner violence do not report the violence they have experienced to authorities. For instance, data from the 2014 General Social Survey on Canadians’ Safety (Victimization) showed that 70% of victims of spousal violence did not report the violence to police.[11]

Some women who experience intimate partner violence might leave abusive relationships and seek refuge in shelters. When referring to shelters and transition houses, witnesses described a variety of organizations providing housing services to individuals in need of a place to stay. Witnesses differentiated between “emergency shelters” and “violence against women shelters”. Emergency shelters are usually geared towards people experiencing homelessness, not violence, and few of them provide services to women only. While women in violence against women shelters are also homeless,[12] being in a specialized shelter can allow them to receive “support from shelter staff who have developed extensive expertise” about violence against women.[13]

Violence against women shelters can also be grouped under two categories: first- and second-stage shelters. Lise Martin, Executive Director of Women’s Shelters Canada, explained that first-stage shelters usually provide housing and services to women and children affected by violence. The length of stay at a first-stage shelter may be days, weeks or a few months. Second‑stage shelters provide longer term accommodation to women and children, usually between a few months and up to two years.[14] Second-stage shelters are similar to what some witnesses described as transition houses (longer-term accommodations offering ongoing support to women and children affected by violence).[15] Unless noted otherwise, the wording “shelters and transition houses” throughout this report refer to shelters and transition houses offering specialized support and services to women and children affected by violence.

Data from the 2014 Transition Home Survey, the most recent comprehensive data available, showed that 627 shelters provided services for abused women in Canada, providing a total of 12,058 beds. Figure 1 shows that the distribution of shelters varies across Canada. Even though rates of policed-reported violent crimes committed against women are high in the three territories, there is a “low number of shelters” in this part of Canada.[16]

Figure 1—Number of Shelters and Beds Providing Services to Abused Women by Province and Territory, 2014

Note:      Numbers shown in Figure 1 include data from transition homes, second-stage housing, women’s emergency centres, emergency shelters, safe home networks and other residential facilities offering services to abused women.

Note:      Data from the 2018 Survey of Residential Facilities for Victims of Abuse should be available in Spring 2019. Data from this survey will give a more up-to-date overview of the system of shelters and transition houses serving women and children affected by violence in Canada.

Source:  Table prepared by the Library of Parliament using data obtained from: Sara Beattie and Hope Hutchins, “Shelters for abused women in Canada, 2014,” Number of shelters, beds, and women and children residents, provinces and territories, April 16, 2014, Juristat, 85-002-X, Statistics Canada, 2015.

In contrast to the Statistics Canada data from 2014, Lise Martin told the Committee that, according to Women’s Shelters Canada’s database, approximately 550 first- and second-stage shelters offer services to women experiencing violence in the country.[17] Employment and Social Development Canada (ESDC) also collects data on homeless people service providers through the National Homelessness Information System. The most recent data available is from 2016; however, a representative from ESDC told the Committee that violence against women shelters are under-represented in ESDC’s database as few have data-sharing agreements with ESDC.[18]

Women’s reasons for accessing shelters can include fleeing abuse, wanting to protect their children or being unable to access affordable housing (see Figure 2). On 16 April 2014 (the snapshot day for Statistics Canada’s Transition Home Survey), abuse was the most common reason for seeking shelter cited by women, with emotional abuse and physical abuse being the most common forms of abuse reported.[19]

Figure 2—Women’s Reasons for Seeking Shelter on 16 April 2014

Note:      Data shown in Figure 2 include data from transition homes, second-stage housing, women’s emergency centres, emergency shelters, safe home networks and other residential facilities offering services to abused women.

Source:  Table prepared by the Library of Parliament using data obtained from: Sara Beattie and Hope Hutchins, “Shelters for abused women in Canada, 2014,” Table 3: Women's reasons for seeking shelter, provinces and territories, April 16, 2014, Juristat, 85-002-X, Statistics Canada, 2015.

 

The Committee heard that shelters and transition houses serving women and children affected by violence are underfunded[20] and often rely on funding that is project-based and limited in time.[21] Many witnesses told the Committee that the funding received for their shelters or transition houses has not increased in several years and that current funding levels are not sufficient to cover all of the organizations’ expenses.[22] With the exception of some on‑reserve shelters, shelters and transition houses in Canada receive the majority of their funding from provinces and territories.[23] The Committee was told that this creates disparities in funding levels for shelters and transition houses across Canada, which results in women and children not having access to comparable services across the country.[24] As well, the Committee was told that shelters and transition houses located in rural or remote communities must overcome additional challenges to secure funding for their operations; shelters and transition houses in these communities must often fundraise to cover expenses, which is difficult in smaller communities, and the cost of living is often higher, especially in northern communities.[25] Witnesses stated that the provision of funding should be more uniform across Canada, so that women and children have access to similar support and services no matter where they live.[26]

Several witnesses spoke about the lack of ongoing operational funding for shelters and transition houses and stressed the need for them to be fully funded so that they are able to offer comprehensive and timely services and support to women and children affected by violence, and recruit and retain employees.[27] Some witnesses suggested that the federal government could provide funding to provinces and territories via the Canada Social Transfer,[28] for example by including shelter and transition house services as a mandatory service.[29]

Witnesses stressed the need for all levels of government (municipal, provincial, territorial and federal) to work collaboratively and take a “horizontal” approach to shelter and transition house funding.[30] Jeff Morrison, Executive Director of the Canadian Housing and Renewal Association, suggested that the federal government also consider “direct federal-to-municipal transfers.”[31]

Recommendation 1

That the Government of Canada increase funding for construction, repairs, renovations, and expansion of shelters and transition houses serving women and children affected by violence, with a focus on improving the capacity and accessibility of shelters and transition houses.

Federal Funding Programs for Shelters and Transition Houses Serving Women and Children Affected by Violence

The Committee heard about some federal funding programs available to shelters and transition houses serving women and children affected by violence. However, the federal government mostly offers capital funding, except for on-reserve shelters funded by Indigenous Services Canada.[32] Witnesses explained that federal funding programs are not always easy to navigate and that funds are not released fast enough.[33]

Canada Mortgage and Housing Corporation

The Canada Mortgage and Housing Corporation (CMHC) is leading the implementation of the National Housing Strategy (NHS), a 10-year plan to “create a new generation of housing in Canada.”[34] The federal government has announced $40 billion of funding for the NHS.[35] Charles MacArthur, Senior Vice-President, Assisted Housing at CMHC, stated that the NHS “will aim for 33% of all investments to support projects that specifically target women, girls and their families, recognizing the unique vulnerabilities they face.”[36] Charles MacArthur explained that priority clients are identified in the project intake process and projects that serve these clients are prioritized.[37]

The National Housing Co-Investment Fund (the Fund) was launched in May 2018 and is part of the NHS.[38] The federal government announced that the Fund will provide $4.7 billion in financial contributions and $11.2 billion in low-interest loans for up to 60,000 new housing units and for up to 240,000 repaired housing units.[39] The federal government has announced that at least 4,000 shelter spaces for victims of family violence would be created.[40] Lise Martin said that funding from the Fund should encourage the creation of more first- and second-stage shelters serving women and children affected by violence.[41]

The Committee heard several concerns with regards to the NHS, including the difficulty for housing providers to meet the Fund’s standards for units’ accessibility; the lack of an urban, rural and northern Indigenous housing strategy; and “the lack of measures to address the social support that are still required, particularly for women and children, for social housing.”[42] Jeff Morrison recommended that an urban Indigenous housing stream be added to the NHS, developed by and for Indigenous peoples. He also stated that it is essential that the NHS be aligned with municipal, provincial and territorial housing strategies.[43] As well, witnesses told the Committee that there is a need for more transparency in how funding under the NHS is allocated and which organization is eligible to receive it.[44] John Gerrard, Chief Executive Officer, Habitat for Humanity Halton-Mississauga, told the Committee that “[t]he biggest challenge for many not-for-profit organizations is cash flow. Not having good, strong financial funding up front is what slows many of us down. If that funding were moved to the front of a project, I think you'd see a lot faster results.”[45]

Recommendation 2

That the Government of Canada consider adding an urban Indigenous housing stream, developed in collaboration with Indigenous peoples and communities, to the National Housing Strategy.

Recommendation 3

That the Government of Canada, through the Canada Mortgage and Housing Corporation, explore the possibility of providing front-end funding to organizations that they contract with to build affordable housing units.

Indigenous Services Canada

Indigenous Services Canada’s Family Violence Prevention Program (FVPP) provides operational funding to 41 shelters for women and children living on‑reserve across the provinces and Yukon. These 41 shelters serve approximately 330 First Nations communities, which represent approximately 55% of all First Nations communities.[46] Representatives from the CMHC and the Department of Indian Affairs and Northern Development told the Committee that the Government of Canada invested $10.4 million in the construction of five new shelters, providing 40 beds in total, that will receive operational funding under the FVPP; their construction should to be completed by March 2019.[47] However, the Committee heard that shelters funded through the FVPP receive less operational funding than shelters funded by provinces and territories.[48] Witnesses told the Committee that this difference in funding has negative consequences on staffing (including employee burn out, high employee turnover rate, difficulty in recruiting employees and low pay), on the availability of culturally appropriate resources for First Nations women, on the space available for shelter clientele, and on the availability of second-stage housing.[49] Anita Olsen Harper, who appeared as an individual, stated that the federal government reimburses provincially funded shelters at a higher rate than it reimburses shelters located on-reserve, a practice she qualified as discriminatory.[50]

As well, Samantha Michaels, Senior Policy Advisor at Pauktuutit Inuit Women of Canada, explained that since Inuit communities are not reserves, shelters in Inuit communities are not eligible to receive operational funding through the FVPP.[51] The organization recommended that shelters in Inuit communities be able to receive operational funding from the FVPP.[52]

The FVPP also provides funding for proposal-based violence prevention projects and core funding to the National Aboriginal Circle Against Family Violence.[53] A representative from the Department of Indian Affairs and Northern Development told the Committee that the Government of Canada invests $37.8 million “on an ongoing basis to support” the FVPP.[54]

Employment and Social Development Canada

The Homelessness Partnering Strategy (HPS) is an Employment and Social Development Canada program “aimed at preventing and reducing homelessness by providing direct support and funding to 61 designated communities and to organizations that address Aboriginal homelessness across Canada.”[55] Under the HPS, organizations can receive funding for projects whose goal is to reduce homelessness. The HPS is focused on the Housing First approach, an approach “designed to get more individuals experiencing long-term homelessness into permanent housing and then providing them with wrap-around support as quickly as possible,”[56] that is now used for other demographic groups such as women and families.[57] According to a representative from the Department of Employment and Social Development, between April 2014 and October 2018, the HPS provided $40.4 million for 225 projects, one third of which targeted women fleeing domestic violence.[58] Arlene Hache, a community advocate who appeared as an individual, told the Committee about community organizations’ concerns with regards to HPS funding in Yellowknife:

All of a sudden, the federal government decided to change the whole thing and make it city hubs. Now the city controls it. There's a hub. They disbanded the community committee. It became a very bureaucratic, non-inclusive, silencing kind of body where they decide who gets the money.… We have to really keep in mind that the voice of people with lived experience is excluded by service providers, by government, by decision-makers.[59]

A representative from the Department of Employment and Social Development told the Committee that Reaching Home: Canada's Homelessness Strategy will replace the HPS on 1 April 2019. The Strategy will maintain the community-based approach from the HPS but “will give communities greater flexibility to address local priorities and invest in homelessness prevention and programming designed to meet the needs of different vulnerable populations, including women and children fleeing violence.”[60]

Violet Hayes, Executive Director of the Island Crisis Care Society, told the Committee that her organization received funding through the Rural and Remote Homelessness funding stream of the HPS in 2014, but that they did not receive funding the year after, which made it difficult to continue offering programming. She recommended that recipients of funding through the HPS Rural and Remote Homelessness funding stream not have to make an ongoing annual application;[61] rather that funding be allocated for a three- to five-year period. She also recommended that capital funding be available through the HPS.[62]

Recommendation 4

That the Government of Canada consider changing the funding model of the Homelessness Partnering Strategy (HPS) and Reaching Home: Canada's Homelessness Strategy to provide multi-year funding for successful programming, rather than requiring providers to submit an ongoing annual application.

Status of Women Canada

The Committee heard that Status of Women Canada’s[63] Women’s Program provides project-based funding to violence against women shelters. Projects funded usually focus on “best practices and improving services that can then be shared across the country with similar organizations.”[64] Jennifer Gagnon, Executive Director of the South Shore Transition House Association (Harbour House), suggested that the fact that funding received must be for new programs “fails to address one of the greatest needs:” building the staffing capacity to meet the demand for services.[65] Melpa Kamateros, Executive Director of The Shield of Athena – Family Services, suggested that funding for projects that show great results be continued.[66]

 

Women and children affected by violence can face a number of barriers preventing them from accessing shelters and transition houses’ services, including difficulties leaving abusive relationships; not being able to access housing services provided by shelters; and not being able to access shelters and transition houses’ support and services. These barriers are described in sections that follow.

Leaving an Abusive Relationship

Not all women in abusive relationships choose to leave them to go to shelters.[67] Some women might stay with family members or friends,[68] while some might stay in the relationship. Various factors affect women’s decisions to leave an abusive relationship.

Lack of financial autonomy or low incomes can mean that some women have to make a choice “between remaining with an abuser and falling into poverty and/or homelessness.”[69] Witnesses recommended that the Government of Canada consider implementing additional measures to help alleviate poverty for women leaving abusive relationships,[70] such as implementing “a living wage”[71] or a universally accessible “guaranteed livable income.”[72] Witnesses also stated that the Government of Canada should establish strong “national standards for social assistance” along with cost-sharing agreements and enforcement measures with provinces.[73]

As well, women wanting to leave abusive relationships might not be able to find safe and affordable housing,[74] which can put them “in the difficult position of staying with family, staying with someone and possibility offering favours in order to stay there, or potentially facing the street.”[75] Women leaving abusive relationships with their children may also worry that their children might be apprehended by child protective services because of the unstable situation they are in.[76] For instance, women going to a shelter not specifically designed for women or families might fear having their children taken by child protective services because the environment in which they live is not ideal for children.[77]

Leaving abusive relationships can also result in employment loss for women: women may have to travel out of town or take time off work to seek support and services, especially in rural communities.[78] According to Fiona Cunningham, a mental health counsellor at Iris Kirby House (St. John’s and Carbonear), in Newfoundland and Labrador,: “there are no shelters to be accessed locally, meaning that a woman may have to choose between safety and employment.”[79] Some witnesses suggested that paid domestic violence leave could help women leaving abusive relationships to seek the services they need, “rebuild their lives and regain power.”[80]

Accessing Housing Services

Availability of Beds

The Committee heard that violence against women shelters and transition houses often operate at capacity. Almost every witness told the Committee that shelters and transition houses often turn away women and children fleeing violence because of a lack of space.[81] Jennifer Lepko, Chief Executive Officer of the YWCA Lethbridge and District, told the Committee:

Imagine having to run for your life in the middle of the night to escape being beaten to death. For many, escaping is the time when they would be most at risk of losing their life. You show up at the front door of a shelter with nothing but the clothes on your back. You then have to share your story with complete strangers, and tell them about the horrors you have experienced, all the while blaming yourself for much of the abuse you have endured. You are then told that the shelter is full. Now what? You will likely return to your abuser, not because you want to but because if you had any other option you would have tried it before coming to a shelter.[82]

According to a representative from Statistics Canada, on 16 April 2014 (the snapshot day for Statistics Canada’s Transition Home Survey), “more than 300 women and 200 of their children were turned away from a shelter,” more than half of them because the shelter was at capacity.[83] In a written brief, the Regroupement des maisons pour femmes victimes de violence conjugale stated that the lack of available beds in violence against women shelters reflects a larger lack of access to essential support and services for women affected by violence.[84]

Faced with a lack of available beds in violence against women shelters, women might return to abusive relationships or sleep in their cars.[85] Some women will access emergency shelters, which might not be adapted to their needs.[86] The Committee heard that if violence against women shelters are not available to take a woman in, they sometimes try to transfer the woman to another shelter in the area or find support and services for her.[87] Such a transfer might be difficult in areas of the country where the supply of shelter beds is limited.[88] Some witnesses recommended implementing a centralized intake system to ensure that women who need to access shelters are able to do so, along with transportation plans for women who need to travel to shelters.[89]

Witnesses also told the Committee that shelters might take in women even if they are already full. For instance, Lyda Fuller, Executive Director, YWCA, Northwest Territories, said: “we also do overflow in our shelters, so we might take more women than we have space for. For example, we have a list of women who are so high-risk that no matter when they present, we would take them in, even if we have to put mats on the floor.”[90] Operating above capacity means that shelters provide services to more women than for which they receive funding.[91]

Witnesses stressed the need for more spaces in violence against women shelters or safe spaces for women to respond to the demand.[92] Bonnie Brayton, National Executive Director of the DisAbled Women's Network Canada, told the Committee that creating more shelter spaces requires “resources and funding for infrastructure, and a coordinated infrastructure that allows for thinking through full accessibility and inclusion, in terms of the approach.”[93] The Committee heard that Habitat for Humanity Halton-Mississauga is currently building housing that will be managed by local women’s organizations. John Gerrard explained how a collaborative approach between community organizations and governments might result in better outcomes: “By simply collaborating with our partners, we can focus our resources and spend more time doing what's best, reducing the need for more government funding and allowing funding and government donors to also focus funding in specific areas.”[94] John Gerrard noted the difference between capital and program delivery components of a project: “Don't ask the specialists of programming to build housing, the bricks and mortar. At the same time, don't ask your bricks and mortar folks to deliver programming.”[95]

Criteria to Access and Stay in Violence Against Women Shelters and Transition Houses

The Committee also heard that some women might not fit criteria to access violence against women shelters. Shelters might have to turn away women because the shelters are not adapted to some women’s needs.[96] In a written brief, the YWCA Hamilton explained that “women who identify as abused and homeless, often get streamed through the homeless sector” which prevents them “from accessing the appropriate trauma informed support.”[97]

Conversely, women who are homeless, but are not victims of violence, often do not have a place to go since they do not meet the criteria to access violence against women shelters and women-only emergency shelters are rare.[98] However, women might avoid emergency shelters because they may not be safe for them or because women do not want to risk having their children taken away by child protective services.[99] Eva Kratochvil, a survivor and frontline worker at Hiatus House, noted that shelters serving homeless individuals “were not constructed to be secure facilities meant to protect women from danger.”[100] Tim Richter, President and Chief Executive Officer of the Canadian Alliance to End Homelessness, explained that there is no national definition of homelessness. Usually, definitions used are narrow and include individuals in shelters for people experiencing homelessness, which excludes women in violence against women shelters.[101]

In addition to criteria that must be met to access services, shelters often have a set of rules that residents must follow. The Committee recognizes that shelters develop rules in order to create a safe environment for all residents. However, these rules might have unintended consequences for some women; in some instances, the rules might make it difficult for shelters to accommodate women who have complex needs while maintaining a safe environment for all residents.[102]

As well, the Committee heard that policies barring pets can be a barrier for women with pets who are trying to leave abusive relationships.[103] Some women might not leave a violent relationship for fear that their pets might be abused or neglected if they leave them behind; pet-friendly shelters could make a difference for these women.[104]

Accessing Social Support and Services

In addition to housing, shelters and transition houses offer a variety of support and services to women and children affected by violence, such as referrals, counselling and advocacy, outreach and administrative services.[105] However, witnesses explained that shelters and transition houses are sometimes unable to meet women’s needs or offer high-quality services because of a lack of financial resources, capacity or space.[106] For instance, shelters and transition houses can have difficulty recruiting and retaining experienced employees trained to deal with the complex needs of the shelters and transition houses’ clientele.[107] In addition, lack of funding means that shelters and transition houses sometimes resort to “single-staffing,” which can put employees in dangerous situations or interrupt client’s counselling sessions because the employee must fulfil other tasks.[108] Low staffing levels negatively affect both women accessing services and employees, who can burn-out because of the amount of work they have to complete.[109] Witnesses stressed the need for shelters and transition houses to receive funding to hire additional employees to meet the needs of women and children affected by violence.[110]

As well, the difficulty of accessing comprehensive and holistic support and services in some cities or regions can create a “revolving-door phenomenon where women are referred from one resource to another, reinforcing the cycle of instability and threatening their safety.”[111] Some women might have to travel to multiple locations in a city or outside of their city or region to access specialized services.[112]

Having access to a continuum of comprehensive and holistic support and services is key for women and children affected by violence to be able to rebuild their lives and move forward.[113] Witnesses recommended that shelters and transition houses receive adequate funding to increase their ability to provide such a continuum of support and services, and that the federal government invest in social support.[114] In particular, witnesses spoke of the importance of investing in training and skills development for women affected by violence.[115] For instance, Travis DeCoste, Housing Support Worker at A Roof Over Your Head, Antigonish Community Transit, recommended that the Government of Canada specifically include, under the Employment Insurance (EI) program, the possibility for women who have experienced domestic violence or intimate partner violence to take training while still receiving regular EI benefits.[116]

Samantha Lacourse, Coordinator of A Safe Place at the Victoria Faulkner Women's Centre, highlighted two federal policy areas that may impede access to social assistance for women who are experiencing violence. Firstly, the 90-day waiting period for a person to change their status to single under Canada Revenue Agency policies can impede women from leaving abusive relationships, as they may not be able to access social assistance if still officially in a relationship. Secondly, in situations where both partners receive social assistance through Indigenous Services Canada, both partners must provide a written notice to change their status to single if the relationship dissolves.[117]

As well, witnesses spoke of the need for legal support and services, such as access to legal representation and legal advocacy for women experiencing violence, and training for professionals in the justice system on family violence.[118]

Furthermore, some witnesses stressed the importance of offering services focussed on children’s needs, for instance trauma-informed mental health services and youth caseworkers, to help children heal from the violence they have experienced or seen.[119] In a written brief, the Table de concertation de Laval en condition féminine recommended that the federal government ensure the development of shelters that can accommodate and respond to children’s needs.[120]

Finally, witnesses recommended investing in skills development and in training for trauma-informed practices for service providers, police and frontline workers dealing with female victims of violence.[121]

Lise Martin explained that shelters serving women and children affected by violence are not considered to be providers of an essential service.[122] In their written briefs, several witnesses recommended that shelters and transition houses serving women experiencing violence be recognized as providers of an essential service.[123]

Recommendation 5

That the Government of Canada, in collaboration with the provinces and territories, develop a national framework on shelter and transition house services for women and children affected by all types of gender-based violence and who are experiencing homelessness to ensure that women and children across the country have access to comparable levels of services, and that this framework:

• ensure that women and children, particularly Indigenous women and children living in urban, rural and remote communities, have access to comprehensive, culturally appropriate, intersectional, and trauma-informed services and continuing support to help them heal from trauma;
• ensure that women and children from diverse backgrounds have access to services and support that meet their specific needs;
• address barriers to accessing beds and services in shelters and transition houses for women’s particular needs, including but not limited to, women living with all types of disabilities; women with mental health and substance use struggles; transgender women and non-binary individuals; immigrant and refugee women; and women who are victims of human trafficking; and
• create funding agreements between the federal, provincial and territorial governments to provide shelters and transition houses serving women and children affected by violence with increased and ongoing operational funding.

Recommendation 6

That the Government of Canada ensure that information on receiving benefit payments through the Canada Revenue Agency, such as the Canada child benefit, is readily accessible to women who are in, or have left, an abusive relationship, or women staying in a shelter.

Recommendation 7

That the Government of Canada, in partnership with Indigenous peoples and communities, work with provinces and territories to:

• develop strategies to deal with gender-based violence and to ensure police and prosecutors use a common set of practices in dealing with female survivors of gender-based violence; and
• lead national coordination of a review of the justice system to ensure equal access to protection and justice across the country for survivors of violence against women and girls.

Barriers Facing Women from Diverse Backgrounds

While women from any background can be affected by violence,[124] certain groups of women face greater risks of violence and homelessness than others.[125] In addition to increased rates of violence, these women may face further barriers in accessing shelters and transition houses’ services.[126] They may be subject to violence and conflict within the shelter system, either from other residents or from staff, or they may be discharged from shelters if they are unable to integrate into the shelters or transition houses’ communities[127] or if they “break a minor rule.”[128]

Indigenous Women

Indigenous women face higher risks of violence than non-Indigenous women in Canada, with Inuit women experiencing the highest rates across the country.[129] Indigenous women and children who flee violence often do not have access to equitable services in shelters and transition houses when compared to non-Indigenous women. Shelters located on‑reserve are “chronically underfunded” and operate above capacity.[130] In many Indigenous communities, there are simply no shelter or safe spaces for women and children affected by violence. For instance, “[d]espite Inuit Nunangat[131] experiencing the highest rates of violence in the country, greater than 70 per cent of the 52 Inuit communities across Inuit Nunangat do not have a safe shelter for women, and often the homes of family and friends are overcrowded due to the lack of available and affordable housing.”[132] Lack of access to shelters within their communities can force Indigenous women to travel to find a safe place to stay, if transportation is available and accessible.

Since Indigenous communities are usually small, confidentiality is a significant concern for Indigenous women fleeing violence.[133] Indigenous women living in such communities may hesitate to report violence and to seek shelter services.[134] In some cases, shelters in urban settings or in other communities can offer more anonymity to Indigenous women than those located in their communities.[135] Witnesses suggested that efforts to ensure security in shelters located in smaller communities be developed with a multi-stakeholder group,[136] and that building shelters near police or medical services and the use of security cameras may increase security.[137]

In leaving their communities, Indigenous women can become disconnected from their social support, communities and land, making them more vulnerable to abuse.[138] As well, Indigenous women may be uncomfortable seeking services from non-Indigenous shelters because of fear of being subject to discrimination and racism; a lack of culturally appropriate services; and fear of being separated from their children:[139]

Indigenous women experience multiple intersecting forms of family, state, and structural violence. Many shelter services are failing Indigenous women by ignoring the ways in which colonization has normalized violence in Indigenous communities, but also the ways in which culture can support pathways to healing.[140]

To heal from trauma, the Committee heard that Indigenous women need a continuum of long-term, gender-specific, trauma-informed and culturally appropriate support and services, including mental health services and counselling, that incorporate Indigenous expertise.[141] In a written brief, Pauktuutit Inuit Women of Canada recommended that the federal government ensure that a full suite of integrated services be available for Inuit women, such as telehealth support, after-hours services for women and children experiencing violence, multi-purpose healing facilities, and that the federal government, in collaboration with Inuit women, develop a plan to reduce current service gaps.[142] In a written brief, the Native Women's Association of Canada stressed the importance of supporting Indigenous women fleeing violence: “When we support women escaping family violence in meeting their physical, emotional, mental, and cultural needs, we interrupt the cycles of violence in their communities.”[143] As well, witnesses recommended that the federal government provide funding for trauma-informed training and cultural competency training for service providers, especially for non-Indigenous service providers.[144]

Recommendation 8

That the Government of Canada increase funding for on-reserve shelters serving women and children affected by violence to ensure that First Nations women and girls living on-reserve who are experiencing violence have access to comparable shelter services and support as women and children living off-reserve.

Recommendation 9

That the Government of Canada work with Inuit governments and communities to explore options, such as expanding the eligibility criteria for funding under the Family Violence and Prevention Program, with a view to providing adequate and long-term funding for shelters and transition houses serving women and children affected by violence in Inuit communities.

Recommendation 10

That the Government of Canada continue to work with Indigenous governments and communities to ensure that safe housing options and culturally appropriate support and services are available for Indigenous women and children victims of violence who live in communities where no shelters are available.

Recommendation 11

That the Government of Canada facilitate the collaboration among women’s organizations and Indigenous organizations to develop and implement, in partnership with Indigenous women who have lived experience of homelessness or violence, a culturally appropriate and competency-based staff training curriculum specific to the needs of First Nations, Inuit and Métis women.

Women Living with Disabilities

Women living with disabilities experience higher rates of violence, and face higher risks of being victims of intimate partner violence, than women living without disabilities.[145] These risks increase for women living with disabilities who also belong to other marginalized groups, such as racialized women, Indigenous women and immigrant women.[146] Women can also become disabled because of violence; for example, violence can cause traumatic brain injuries.[147] Witnesses stated that as women enter shelters, there should be a screening process for brain injuries, as these conditions may affect women’s needs and behaviour. The Committee heard that while some shelters can screen for these injuries, others do not have the resources to do so.[148]

The Committee heard that barriers specific to women living with disabilities can inhibit them from leaving abusive relationships and from accessing shelters and transition houses. For instance, shelters are typically older buildings that may not be accessible to individuals living with disabilities.[149] Accessibility extends beyond physical accommodation and shelters and transition houses’ employees may not be equipped to address the complexities and diversity of disabilities.[150] In shelters and transition houses with accessible spaces, women living with disabilities can become socially isolated, for instance if the accessible spaces are physically separated from the rest of the residents.[151]

Witnesses called for an increase in funding for shelters and transition houses to allow them to become fully accessible for women living with diverse types of disabilities.[152] In addition, witnesses stated that providing training and education in shelters and transition houses regarding the complexities of living with disabilities would be beneficial for women seeking support from shelters and transition houses.[153] Finally, in a written brief, the DisAbled Women's Network Canada recommended that the Government of Canada review its housing policies and programs to ensure that there is no gap in services for women living with disabilities.[154]

Recommendation 12

That the Government of Canada facilitate research to identify best practices regarding protocols or screening questions to recognize possible traumatic brain injuries, acquired brain injuries, post‑traumatic stress disorder or other mental illnesses or disabilities resulting from violence among women entering shelters and transition houses and provide funding for this research where necessary.

Immigrant and Refugee Women and Women from Diverse Cultural Backgrounds

Shelters and transition houses serve women coming from different ethnic, cultural and linguistic backgrounds.[155] Because of a lack of resources, shelters and transition houses may struggle to provide these women with services that meet their cultural and linguistic needs.[156] Women who speak languages other than French or English may encounter significant barriers in learning about and accessing shelters and transition houses or other social services, as well as when reporting violence to police.[157] As such, witnesses underlined the need for collaboration among service providers and increased access to information in women’s first language.[158]

Witnesses explained that women without legal status in Canada encounter difficulties in accessing social services. Long wait times associated with obtaining permanent residence or refugee status can further delay access to health care and income assistance, which can in turn force women and children to stay in shelters and transition houses for longer.[159] Women who are seeking legal status in Canada may be vulnerable to abuse, and a woman’s legal status may be used as a means of control by an intimate partner, particularly if that partner is sponsoring her migration.[160] Sometimes, women in these situations are unaware of their rights, and do not seek help for fear of being deported.[161]

Witnesses stated that funding should be provided to increase shelters and transition houses’ capacities to properly support immigrant and refugee women who are experiencing violence.[162] In addition, YWCA Metro Vancouver recommended, in a written brief, to expedite the process for applications for permanent residency status on humanitarian and compassionate grounds for women victims of violence to “reduce the exposure to harm by making it easier for women without status, or with precarious stays to leave their abusive partner.”[163]

Women in Specific Age Groups

The Committee was told that most youth seeking services at youth homeless shelters have been exposed to violence in their own homes, and/or on the streets.[164] For female youth, accessing shelters and transition houses for women experiencing violence may be difficult because of their age or the lack of parent or guardian being with them. Gaps in services may force female youth experiencing violence to remain in abusive relationships to avoid the dangers of homelessness.[165] Youth shelters are often under-resourced and unequipped to properly manage the needs of young women fleeing violence.[166] In a written brief, Eva’s Satellite (a shelter for youth struggling with substance use and mental health troubles in Toronto) underlined the need for funding to create shelter spaces and have employees in youth shelters who can deliver services and meaningful programs for young women experiencing violence.[167]

Older women can also face unique challenges when fleeing abusive relationships. The Committee heard that shelters and transition houses have seen an increase in older women accessing their services.[168] According to witnesses, most shelters and transition houses were built to accommodate a younger demographic; but as Canada’s population ages, these services need to be tailored and accessible to older women.[169] Older women may face significant financial barriers when trying to access housing; because of a small pension for instance.[170]

Women Living in Rural and Remote Communities

Women affected by violence who live in rural and remote communities face significant barriers when trying to access shelters and support.[171] Factors such as geographic isolation,[172] absence of confidentiality in small communities,[173] limited access to telephone or Internet services,[174] and lack of emergency services[175] represent some of the challenges facing women living in a rural or remote community wanting to flee abusive relationships. As well, the Committee was told that there is a limited number of shelters, transition houses and related services in rural and remote communities in Canada.

Witnesses stated that the lack of public or affordable transportation is of particular concern for women living in rural or remote communities who are affected by violence;[176] the inability to safely travel to other communities can lead to life-threatening situations for women.[177]

Linda Lafantaisie Renaud, Director of the Horizon Women's Centre, highlighted that the recruitment and retention of qualified, bilingual frontline workers remains a challenge in rural and remote communities.[178]

Witnesses suggested that operational funding be provided to shelters and transition houses in rural and remote communities, and that funding for transportation and legal services for women experiencing violence in remote and rural communities be increased.[179]

Recommendation 13

That the Government of Canada in collaboration with the provinces, territories and Indigenous governments, fund transportation for women living in urban, rural, remote, and northern communities, including in Indigenous communities, who are fleeing violence and do not have access to safe shelter services in their home community.

Female Victims of Human Trafficking

The Committee was told that there is a significant gap in services in shelters and transition houses for victims of human trafficking. Female victims of human trafficking might not meet criteria to access shelters and transition houses serving women and children affected by violence. Shelters and transition houses serving women and children affected by violence may have strict rules against sex work; these rules can be a barrier to accessing services for victims of human trafficking who are engaged in sex work.[180] As well, female victims of human trafficking might have difficulty following specific rules and schedules that residents of shelter and transition house must follow, “as they have just exited a similar situation where their daily routines and mobility were completely controlled by their trafficker.”[181]

Witnesses underlined that trauma-informed, intersectional and harm-reduction-based housing models are required to properly support and address the needs of victims of human trafficking.[182] In addition, witnesses stated that services in the shelter and transitional housing system must distinguish between, and meet the distinct needs of, victims of trafficking and those who participate in consensual sex work.[183]

Recommendation 14

That the Government of Canada provide funding, through the National Housing Strategy, for the creation of housing support specifically designed for survivors of human trafficking.

Individuals Identifying with Certain Gender Identities and Sexual Orientations

The Committee heard that individuals who identify as lesbian, gay, bisexual, transgender, queer and Two-Spirit (LGBTQ2S) face high rates of violence.[184] However, when services identify violence as “male violence against women,” many members of these communities are excluded.[185] Women who are transgender may be turned away from women’s shelters and transition houses as they are sometimes “being told that [their] presence in women's services is triggering for cisgender women who have faced violence at the hands of men.”[186] Furthermore, individuals who identify outside the gender binary are often forced to choose between shelter and transition houses for women and men; as such, gender-diverse individuals and individuals who are transgender may not be able to access the services they need. Individuals who are transgender may remain in violent or dangerous situations to avoid seeking shelter services that do not meet their needs or that are unwelcoming to them.[187]

The Committee was told that reliable data are not available regarding the experiences of women who are transgender with respect to homelessness, intimate partner violence or access to shelters and transition houses’ services. Individuals who are transgender are often placed in a broad category with individuals identifying as lesbian, gay, bisexual or queer. Without data and research specific to people who are transgender, their experiences and needs cannot be addressed accurately.[188] Witnesses stressed that individuals who identify as LGBTQ2S should be consulted and their experiences should be taken into account when developing solutions to address intimate partner violence.[189] Witnesses also suggested that greater support be extended to transitional services for vulnerable groups, including LGBTQ2S communities.[190]

Women who Have Complex Mental Health or Substance Abuse Issues

Witnesses explained that shelter and transition house policies often inhibit access for women who struggle with complex mental health and substance use challenges,[191] and that women may hesitate to disclose these challenges when seeking shelter services.[192] Shelters and transition houses are generally under-equipped to properly support women with complex mental health or substance use issues.[193] These women often require significant support, and may have trouble integrating into communal living environments, such as in shelters or transition houses.[194] As well, shelter rules around alcohol and substance use might be difficult for some women to follow and might prevent them from accessing or staying in a shelter.[195] Witnesses suggested that funding should be provided to establish harm-reduction and “low-barrier” shelters[196] and to train employees of shelters and transition houses to properly support women with mental health and substance use addictions.[197]

 

Gender-based violence is a key contributing factor to women’s housing insecurity in Canada:

Gender-based family violence is a key factor contributing to women’s housing instability and homelessness in Canada. Women in the [gender-based violence] sector have not been counted in the homeless numbers locally or nationally, and we want to ensure that their homelessness and housing instability are accurately captured in the local and national analysis.[198]

Women and children who leave shelters can go to various types of housing: transitional, market, or social housing, and, eventually, to homes that they own. These housing options, along with barriers preventing women from accessing them, are described in the sections that follow.

Access to Transitional Housing

The Committee heard that transition houses – longer-term accommodations, usually between a few months and up to two years offering ongoing support[199] – are a crucial interim step between shelters and more permanent housing for women leaving violent situations.[200] Transition houses can help women navigate various social services and administrative processes, such as securing financial support and housing, accessing lawyer services, navigating child custody issues and child care, and providing police statements.[201] The Committee was told that a significant gap exists in the capacity of transition houses to meet the needs of women and children affected by violence – typically because of a lack of funding and resources – which can result in women being sent outside their communities to try to access these services or returning to violent environments.[202]

When leaving shelters, women may encounter barriers in accessing housing, such as high housing prices and a lack of transitional housing in their communities.[203] In particular, it was noted that when Indigenous women leave shelters, they may return to their communities, which may be too far for shelters to provide ongoing outreach and follow-up services.[204] For example, Josie Nepinak, Executive Director of the Awo Taan Healing Lodge Society, explained that increased resources are needed to ensure that women have adequate transitional support and safety plans as they reintegrate into their communities.[205]

Many witnesses emphasized the need to expand access to transitional housing to all communities in Canada, including on reserves, and stated that adequate funding should be provided to build, operate, and provide ongoing services in transitional housing for women fleeing violence.[206] Witnesses highlighted other considerations to improve women’s access to transitional housing, including:

• increasing “community-based follow-up for individual and innovative support services, such as opportunities for women to provide feedback and input regarding program designs and influence service delivery;”[207]
• ensuring that proper safety measures are in place in transition houses[208] and that these houses meet the needs of diverse groups of women;[209]
• establishing agreements with municipalities to guarantee that a number of units in newly built residences are allotted to transitional spaces;[210] and
• creating safe community spaces open to women seven days a week, 24 hours a day, when they need to seek safety.[211]

Access to Safe and Affordable Housing

The Committee heard that while shelters and transition houses are important, they should be seen as temporary solutions for women, between leaving a violent environment and acquiring safe, permanent and affordable housing.[212] This is crucial for women and children to heal from their trauma.[213] Women leaving shelters and transition houses can face barriers when trying to access affordable housing and often have very few viable housing options.[214] The high cost of rental housing in many Canadian cities leaves little money for necessities, even with rent supplements or other income support.[215] The lack of affordable housing has lead to overcrowded shelters and long waiting times for shelter spaces because women are not able to move on to market housing. This situation reduces the capacity of shelters to support more women.[216]

In addition to financial barriers, women must often navigate complex administrative processes to receive rent supplements or other financial support to secure housing,[217] and they may not meet the eligibility requirements for affordable housing priority lists.[218] Witnesses also explained that racism and discrimination exist in the housing market, as landlords may hesitate or refuse to rent to some women, such as single mothers, women receiving social assistance, or Indigenous women.[219]

Some witnesses stated that the housing-first model, and immediate access to housing, can contribute to women’s self-determination and empowerment.[220] In contrast, some witnesses stated that accommodating the housing-first model may contribute to a reduction in the number of shelter beds available to women, and suggested instead employing a “women-first” principle.[221] Witnesses added that solutions to the housing needs of each community should be established in collaboration with the community.[222]

Witnesses emphasized the need to improve and expand the availability of, and access to, affordable housing for women.[223] To do so, witnesses suggested converting some existing buildings to affordable housing units,[224] and adopting co-operative housing models.[225] To help tenants, witnesses recommended providing tax breaks to landlords, implementing rent control measures,[226] creating a federal housing benefit to ensure women are “able to make choices about where to secure housing,”[227] and establishing long-term rent-to-own arrangements.[228] In addition, Martina Jileckova, Chief Executive Officer of the Horizon Housing Society, suggested supporting community housing models that pair affordable housing with social support.[229]

Recommendation 15

That the Government of Canada, in collaboration with the provinces and territories, examine measures that could increase access to affordable housing and transitional support, such as flexible rental supplements or benefits.

Recommendation 16

That the Government of Canada provide support to organizations working in the affordable housing field to operate as social enterprises to sustain their operational needs.

Recommendation 17

That the Government of Canada, with the goal to continue to address the housing affordability crisis, work with provinces and territories to ensure the efficient release of funds allocated to affordable housing under the National Housing Strategy.

Access to Home Ownership

The Committee heard that efforts to make home ownership available to women who have experienced violence are necessary, as home ownership can empower women.[230] As well, some women may benefit from financial literacy training in order to manage their finances after leaving an abusive relationship or fleeing violence.[231] Women who have experienced violence may be in precarious financial situations,[232] which may make seeking financial advice and services difficult, as financial institutions may seem unwelcoming to them.[233] For this reason, Donna Mullen and Marilyn Ruttan, who both have experience as realtors and mortgage brokers, suggested that mortgage brokers and real estate agents receive sensitivity training to properly support and mentor women who have experienced violence.[234] As well, Marilyn Ruttan told the Committee that women leaving shelters should know more about affordable housing programs available to them, such as provincial down payment assistance programs.[235]

Witnesses also told the Committee that new mortgage rules like the “stress test,” can impede some single women’s access to mortgages and home ownership.[236] A representative from CMHC explained that the stress test is meant to protect Canadians from unforeseen financial or economic stress.[237] The Committee heard that the stress test should be eliminated for mortgage applicants who can show six months of continuous full-time work and who are purchasing homes priced at less than $500,000.[238] In addition, witnesses indicated that the following initiatives could help women who have experienced violence have access to home ownership:

• ensuring that all mortgage lenders across the country consider certain social support and benefits, such as child benefits, as income;[239] and
• ensuring that debt for spousal home buyouts outlined in separation agreements is understood as buyout and not mortgage refinancing.[240]

Several innovative solutions to make home ownership available to vulnerable groups of people were presented to the Committee. For example, Antigonish Community Transit in Nova Scotia is exploring the possibility of using shipping containers to create affordable housing,[241] and the Atira Women’s Resource Society has developed multi-unit dwellings from shipping containers, where the residents are part of an intergenerational mentorship program.[242] In addition, the Committee was told that the Aboriginal Housing Society provides affordable housing and the option of home ownership through a “social enterprise model” in collaboration with the private sector. Capital grant funding when available is used to purchase property, and “recycle” the money to increase the number of affordable housing units in the community.[243]

Recognizing that shelters are a temporary short-term option, witnesses presented various housing options for women and children affected by violence. For instance, three witnesses presented owning a home as an achievable goal for some women who have experienced violence. Other witnesses indicated that is typically not a realistic option for most women who are living in shelters and transition houses.[244] Many women who have experienced violence may struggle to afford rent.[245] Diane Beaulieu, Executive Director of Halton Women’s Place, told the Committee that:

Many, many women come to the shelter, and there are some women who perhaps could afford to buy, but they would be women who had resources before they came. I've had the wife of a judge in our shelter. I've had a few nurses in our shelter. When I say that abuse can happen to anyone, it can. Those women might, perhaps, be able to afford to buy, but 99% of the women who come to our shelter would not be able to afford to buy. They cannot afford to rent in Halton. Many of them, if they can't get subsidized housing through Halton Region, have to go to Hamilton to find housing, and even then it's difficult.[246]

 

Prevention programs are key to ending violence against women and to reducing the need for women to access shelter services.[247] In a written brief, the Native Women’s Association of Canada stated that investments in safe and affordable housing in Indigenous communities are also investments in violence prevention.[248] The Committee was told that approaches to prevent and address violence against women should be collaborative and community-based.[249] Witnesses also stressed the importance of including the perspectives of survivors of violence in the development of initiatives to address violence against women and of engaging both perpetrators of violence and Canadian society in these initiatives.[250] In a written brief, Pauktuutit Inuit Women of Canada stressed the need for Inuit women and girls to have access to violence prevention services.[251] As well, various witnesses called for more investments from the federal government to address and prevent violence against women.[252]

The Committee heard about It's Time: Canada's Strategy to Prevent and Address Gender-Based Violence (the Strategy). Since the federal Strategy was launched in 2017, Status of Women Canada, along with other federal departments and agencies, has implemented and invested in various initiatives to support survivors of violence and to prevent violence against women. The Strategy has population-specific programs, including for Indigenous and underserved populations.[253] Some witnesses indicated that the Strategy is insufficient and recommended that a national action plan on gender-based violence be developed in collaboration with provinces and territories to ensure that all women in Canada have equal access to services and protection.[254]

Witnesses explained that any federal strategy or policy on violence against women should be coordinated with other national strategies,[255] focus on social inequalities that affect women from diverse backgrounds,[256] and support survivors in retaining employment.[257]

Many witnesses indicated that preventing violence and encouraging healthy relationships should be approached by the federal government through education programs at all levels of the school system and in communities, and through public awareness campaigns.[258] Witnesses recommended that these awareness campaigns make use of social media,[259] be culturally relevant,[260] and be multilingual.[261] As well, the Committee was told that men and boys need to be involved in ending violence against women.[262] Witnesses explained that men and boys across Canada need to be taught from a young age about gender-based violence and that they are responsible for their own behaviour.[263] A representative from the Department of Indians Affairs and Northern Development indicated that the FVPP has seen an increase in proposals focussed on engaging Indigenous men in ending violence against women and girls.[264]

Recommendation 18

That the Government of Canada, in collaboration with provinces and territories, continue its efforts to create a national action plan on gender-based violence and consider including access to shelters and transitional houses and to safe and affordable housing in this action plan.

Recommendation 19

That the Government of Canada encourage the provinces and territories to consider incorporating gender-based violence prevention into school curricula at all levels of schooling to teach children about gender-based violence, human rights and healthy relationships, with an emphasis on engaging boys in the issue.

Recommendation 20

That the Government of Canada work with community organizations to take substantive action on the recommendations made in the House of Commons Standing Committee on the Status of Women’s report entitled Taking Action to End Violence Against Young Women and Girls in Canada regarding the implementation of culturally sensitive, locally informed and community-oriented awareness campaigns and education programs for various groups, including young people, men and boys, and those living in Indigenous and northern communities.