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2020-2021 Public Safety Canada departmental progress report for Canada’s National Action Plan on Women, Peace and Security

Public Safety Canada and Women, Peace and Security

Public Safety Canada and its various portfolio agencies are playing an important role in advancing the Women, Peace and Security (WPS) agenda over the span of Canada’s National Action Plan (the Action Plan) on WPS 2017-2022. In leading Canada’s domestic response to radicalization to violence, Public Safety ‘s Canada Centre for Community Engagement and Prevention of Violence (Canada Centre), coordinates and develops policy expertise, mobilizes community outreach, and enhances research in countering radicalization to violence. In addition, Public Safety Canada leads the Government of Canada’s effort to combat human trafficking domestically, including support of Canada’s G7 commitments in this area. The Correctional Service of Canada, an agency within the Public Safety Portfolio, is the federal agency responsible for administering sentences of two years or more, along with supervising offenders under conditional release, as well as capacity building activities in international correctional services.

Countering Radicalization to Violence

The Canada Centre for Community Engagement and Prevention of Violence (Canada Centre) leads domestic efforts for preventing and countering radicalization to violence (CRV) and violent extremism in Canada. The Canada Centre continues to bolster its CRV initiatives by integrating key tenets of Canada’s National Action Plan on Women, Peace and Security (WPS), as well as a thorough consideration and analysis of social identity factors, including gender, and their intersectionalities within the public safety and public health nexus. Additionally, the Canada Centre is working with domestic and international partners to address key evidence gaps for prevention and intervention programming to counter radicalization to violence, including explicit focus on areas relevant to and directly involving the WPS agenda. Much of this work involves joint or coordinated investment on projects such as systematic evidence reviews, and developing resources to more effectively and appropriately measure and evaluate CRV programs.

The Canada Centre, through the Community Resilience Fund, provides funding to support the efforts of researchers, front-line practitioners, and community-based organizations to prevent and counter radicalization to violence across Canada, with $7 million available each year for new and existing projects. The 2019 call for proposals was based on the three priority areas identified within the National Strategy on Countering Radicalization to Violence (National Strategy) including: 1) building, sharing and using knowledge, 2) addressing radicalization to violence in the online space, and 3) supporting interventions. The 2019 CRF call for applications also saw the addition of a fourth funding stream – youth-led projects. This stream was made available to empower projects for youth, led by youth, using a streamlined version of the application to ensure enhanced accessibility of the fund.

Human trafficking

Canada’s 2012-16 National Action Plan to Combat Human Trafficking underwent a formal horizontal evaluation and the findings were published in December 2017. The evaluation recommendations called for improved capacity to collect national data on human trafficking; a mechanism to connect victims with access to dedicated services; and closer partnerships with other levels of government, Indigenous communities, civil society, the private sector, and bilateral and multilateral partners. The evaluation will help inform the Government of Canada’s way forward in combatting human trafficking.

In September and October 2018, Public Safety Canada (Public Safety) held human trafficking consultations across the country to gather stakeholder views on challenges and gaps in the federal response to trafficking in persons, to inform the development of Canada’s new national strategy to combat human trafficking.

Federal Budget 2018 announced $14.51 million over five years and $2.89 million per year ongoing to put in place a National Human Trafficking Hotline. In October 2018, following an open call for applications, the Canadian Centre to End Human Trafficking, a non-governmental organization (NGO), was selected through Public Safety Canada’s Contribution Program to Combat Serious and Organized Crime (CPCSOC) to implement Canada’s Human Trafficking Hotline. The Hotline was officially launched on May 29, 2019 and is operational 24/7, 365 days a year with multilingual services to allow victims to easily access the help they need.

Correctional Service of Canada

The work that CSC conducts in advancing the WPS agenda is primarily funded by GAC and thus may change from year to year.

Conclusion

While the department’s primary mission is domestic, it is contributing to the implementation of Canada’s National Action Plan on Women, Peace and Security through its work on countering radicalization to violence, human trafficking, and other internationally connected efforts.

Countering radicalization to violence

Completed Activities:

The Canada Centre for Community Engagement and Prevention of Violence (Canada Centre), has continued to implement a variety of activities aimed at countering radicalization to violence in Canada, which also support the women, peace, and security agenda. In particular, the work of the Canada Centre has helped support research and prevention programming to address the strong connections between ideologically motivated violent extremism (IMVE) and the dynamics around hate, disinformation, conspiracy theories, and gender-based violence, as well how such connections shape forms of religiously or politically motivated violent extremism, to help inform prevention policies and programs.

For example, work continues under the Campbell Global Pooled Fund initiative of systematic evidence reviews to help further build the evidence base for policy, programming and research for countering radicalization to violence, co-led by the Canada Centre along with international partners. The initiative has published new findings notably ‘Cognitive and behavioral radicalization: A systematic review of the putative risk and protective factors.’ The study examined risk and protective factors for radicalization to violence in democratic countries, including the differential roles of gender-related factors across ideologies, and specifically differences in how they may be significant regarding attitudes, intentions, and/or behaviours.

The Canada Centre also continues to support efforts across the provinces and territories, online and offline, to counter radicalization to violence through the implementation of the Community Resilience Fund (CRF) which includes:

As mentioned in the 2019-2020 progress report, the CRF is supporting Improving Knowledge and Research Capacity on the Global Incel Community and its Canadian Impact, a research project by Moonshot, which aims to increase the knowledge and research around the global incel community and its Canadian impact. Progress achieved in 2021 incudes, Moonshot’s publication of its second report entitled “Understanding and Preventing Incel Violence in Canada”, which has helped to improve the understanding of the incel community and the scale of the community’s online activity in Canada. Additionally, the report outlines the known demographics and size of the at-risk community on several major social media platforms, maps best practices from fields related to the vulnerabilities identified within the incel ecosystem, and presents evidence-based recommendations to identify risk and respond to such gender-driven violence. Based on this work, Moonshot is also working with frontline intervention programs in Canada to help inform their efforts to reach and engage those vulnerable or at-risk, to help guide to more pro-social, non-violent pathways.

Additionally, the CRF continues to support the Institute for Strategic Dialogue, in partnership with the Ontario Tech University (OUT), mapping the online activity of ideologically motivated violent extremism (IMVE) in Canada. In 2021, the Institute for Strategic Dialogue published “An Online Environmental Scan of Right-Wing Extremism in Canada”, which has provided insight into IMVE online communities within Canada, with a focus on how these communities are grounded in xenophobic and exclusionary understandings of the perceived threats posed by such groups as people of colour, Jews, immigrants, the LGBTQ community and feminists. The study looks at both how factors around gender shape IMVE in general, as well as examining violent misogyny in particular.

In order to help raise awareness and expand the impact of such work, the Canada Centre works with such partners to bring the results and lessons to wider audiences. For example, in fall 2021, the Canada Centre hosted a workshop with a CRF funded initiative entitled Block Hate: Building Resilience against Online Hate Speech. As noted in the 2019-2020 progress report, Block Hate is   4-year research and knowledge mobilization project led by YWCA Canada, which is working to co-create concrete solutions for online hate speech and hate crimes in communities across Canada. The workshop brought together both government and non-governmental representatives and provided a forum to learn about early progress of the initiative, and for dialogue between a diverse set of stakeholders, peers, and practitioners. Similarly, in June 2021, the Canada Centre hosted a webinar with the Institute for Strategic Dialogue to share the findings of their report “An Online Environmental Scan of Right-Wing Extremism in Canada”. This webinar provided an opportunity for a diverse group of practitioners to come together and better understand the evolving online landscape as it relates to IMVE.

Specifically on intervention programs, the CRF continues to support the Canadian Practitioners Network for the Prevention of Radicalization and Extremist Violence (CPN-PREV), which as part of its role develops training and resources for frontline programs, where a significant focus of their work is on support for practitioners from diverse sectors, where resources are co-designed and tailored to their specific needs and contexts, including aspects of gender and diversity. An example of one of those frontline programs, also supported by the CRF, is the Evolve program, implemented by the Organization for the Prevention of Violence. The program delivers services to individuals involved in violent extremism or hate-motivated violence, and/or their families. During the reporting year of 2020-2021, Evolve worked with over twenty participants made up of a combination individuals and family members of individuals involved in violent extremism or hate motivated violence across the spectrum of religiously motivated violent extremism and ideologically motivated violent extremism.

Results and Progress:

The Canada Centre continues to fund research in under-studied areas, such as to better understand online subcultures, including to identify pathways that could lead to violent misogyny, but also to develop approaches of how to prevent gender-driven violence and to intervene with individuals who are being drawn into or support this form of violent extremism. Countering radicalization to violence in the context of violent misogyny is still a nascent field, and initiatives like CPN-PREV and studies like those led by Moonshot, are important to both support frontline intervention programs building capacity, as well as expand the evidence base of offline and online IMVE trends.

The Canada Centre also supports Women and Gender Equality in advancing their work on violent misogyny and gender-based violence. For example, the Canada Centre supports the development of the National Action Plan to end Gender-based Violence led by Women and Gender Equality Canada.

Challenge:

During the 2020-2021 period, COVID-19 and its collateral consequences for individuals and groups has presented a number of challenges for the prevention and intervention programs funded by the Canada Centre. The impact of isolation and extended periods of time alone or with limited in-person social interactions has increased the amount of time individuals are spending online and created new opportunities for individuals to engage with violent extremist rhetoric or milieus online. Additionally, due to the isolated nature of the pandemic, it has made it harder to identify individuals at risk of radicalization to violence and to engage in early intervention efforts.

The pandemic has also created a number of delays in research and programming efforts supported by the Canada Centre’s Community Resilience Fund, such as difficulties for conducting field work and holding events to build networks and develop capacity and trust amongst practitioners.

Human trafficking

Activities (as listed in Public Safety Human Trafficking Implementation Plan):

Canada’s 2012-16 National Action Plan to Combat Human Trafficking underwent a formal horizontal evaluation and the findings were published in December 2017. The evaluation recommendations called for improved capacity to collect national data on human trafficking; a mechanism to connect victims with access to dedicated services; and closer partnerships with other levels of government, Indigenous communities, civil society, the private sector, and bilateral and multilateral partners. The evaluation will help inform the Government of Canada’s way forward in combatting human trafficking.
In September and October 2018, Public Safety Canada (Public Safety) held human trafficking consultations across the country to gather stakeholder views on challenges and gaps in the federal response to trafficking in persons, to inform the development of Canada’s new national strategy to combat human trafficking.

Federal Budget 2018 announced $14.51 million over five years and $2.89 million per year ongoing to put in place a National Human Trafficking Hotline. In October 2018, following an open call for applications, the Canadian Centre to End Human Trafficking, a non-governmental organization (NGO), was selected through Public Safety Canada’s Contribution Program to Combat Serious and Organized Crime (CPCSOC) to implement Canada’s Human Trafficking Hotline. The Hotline was officially launched on May 29, 2019 and is operational 24/7, 365 days a year with multilingual services to allow victims to easily access the help they need.

Completed Activities:

In September 2019 the Government of Canada launched the National Strategy to Combat Human Trafficking (National Strategy), which brings together federal efforts under one strategic framework. As Canada’s policy lead on anti-human trafficking efforts, Public Safety Canada oversees the implementation of the National Strategy in partnership and coordination with other federal partners. The National Strategy is supported by an investment of $57.22 million over five years and $10.28 million ongoing.

In 2020-21, Public Safety continued to incorporate gender-responsive, trauma-informed and culturally relevant approaches in response to human trafficking domestically and internationally:

Public Safety continues to coordinate with federal partners on Canada’s response to human trafficking. Through the federal Human Trafficking Taskforce (HTT), Public Safety works with federal departments to implement, coordinate, and manage efforts to address human trafficking in Canada and abroad. The HTT is comprised of departments and agencies that address human trafficking from different aspects of the crime, including the Royal Canadian Mounted Policy, Canadian Border Service Agency, Department of National Defence, Department of Justice, Women and Gender Equality and Global Affairs Canada.

Public Safety also supports Global Affairs Canada’s anti-human trafficking efforts abroad. These efforts include international assistance policies that tackle the root causes of gender-based violence, and capacity-building projects that prevent and respond to threats from international criminal activities, including human trafficking. Public Safety will continue to strengthen international engagement with partners to end human trafficking through respect for the rule of law and international protocols, advocacy for human rights and gender mainstreaming, and participation in key international fora.

Results and Progress:

As the federal lead on Canada’s response to human trafficking, Public Safety has continued to incorporate WPS priorities into its responses to human trafficking. Similar to the WPS Action Plan, Prevention is a key pillar of the National Strategy to Combat Human Trafficking’s strategic framework.

The National Strategy will continue to adapt to emerging opportunities, trends and challenges. As the National Strategy evolves in response to the changing threat of human trafficking, Public Safety continues to coordinate and work collaboratively with provincial/territorial and international partners. Furthermore, the National Strategy recognizes the importance of Gender Based Analysis Plus (GBA Plus) and promotes victim-centered, trauma-informed, culturally-relevant and gender responsive responses to human trafficking.

Public Safety is exploring approaches to establish a survivor-led advisory committee, which would be comprised of victims and survivors of human trafficking. It is anticipated that this committee would allow individuals with lived experiences to make recommendations to the Government of Canada and inform federal anti-human trafficking policies and initiatives.

The National Strategy also supports other Government of Canada priorities and strategies to advance gender equality and benefit marginalized and vulnerable groups, including Indigenous women and girls. The National Strategy is responsive to the Calls for Justice in Reclaiming Power and Place: The Final Report of the National Inquiry into Missing and Murdered Indigenous Women and Girls, as human trafficking and sexual exploitation have been strongly linked to the disproportionately high rates of violence against Indigenous women and girls.

Challenge:

The COVID-19 pandemic has highlighted and exacerbated existing shortfalls in social, political and economic systems, which in turn amplify the root causes of Gender-Based Violence (GBV), including human trafficking. The economic and social stresses and implementation of physical distancing measures have increased isolation, limited contact with family/friends and other support networks, and restricted movement, increasing the risk of human trafficking and exploitation, and making it difficult to access supports and services needed to escape exploitative conditions. Furthermore, the economic slowdown amplified existing socio-economic disadvantages for at-risk populations, making them more susceptible to sex and labour trafficking.

Public Safety also experienced COVID-19 related challenges while implementing certain activities under the National Strategy to Combat Human Trafficking. For example, the signing of Contribution Agreements for funded organizations were delayed due to COVID-19, which resulted in the majority of projects starting later than expected. The Survivor Advisory Committee was also not established in 2020-2021 due to COVID-19 related challenges.

Correctional service of Canada

Completed Activities:

The work that CSC conducts in advancing the Women, Peace and Security (WPS) agenda is primarily funded by Global Affairs Canada (GAC) and thus may change from year to year. As CSC’s ongoing Memorandum of Understanding for the funding of international with GAC expired on March 31, 2020, CSC engaged in preliminary discussions with GAC to explore renewed options for further WPS engagement, and to ensure that the new agreement would be reflective of the current challenges and realities presented by the COVID-19 pandemic. Further, CSC has engaged in discussions with related federal government partners to explore mechanisms to support the deployment of women correctional specialists to peace operations internationally.

CSC’s international activities which contribute to Canada’s National Action Plan on Women, Peace, and Security are as follows:

CSC has additionally worked with Women and Gender Equality Canada (WAGE) in the implementation of the Federal Strategy to Prevent and Address Gender-Based Violence and the development of the National Action Plan to End Gender-Based Violence (GBV National Action Plan) in Canada. In September 2021, CSC researchers held a knowledge sharing session with over 90 representatives from WAGE. The presentations provided a broad overview of federal corrections and more specific information on profiles of federally sentenced women, the prevalence and relationship to reoffending outcomes of indicators of GBV among federally sentenced men and women, outcomes associated with the adverse childhood experiences of offenders, and the recidivism rates of Indigenous and non-Indigenous federally sentenced men and women.

Further, on January 1, 2021, CSC promulgated its Policy on Harassment and Violence Prevention in the Work Place.  Within its policy, it identifies that working in an environment that tolerates or promotes sexist behaviours is a factor that could lead to occurrences of harassment and violence, and it commits to assessing those factors and taking action to prevent those occurrences.

Results and Progress:

CSC has continued to play a contributory role in the provision of WPS-related priorities through its participation in the Group of Friends of Corrections in Peace Operations (GoF). The GoF is a forum for the provision of political, technical, and personnel support to corrections work in United Nations (UN) peace operations.

More specifically, the GoF aims to strengthen the strategic role of corrections in regards to mandates and resource allocation of UN peace operations, support critical activities for the re-establishment and strengthening of prison services in host countries of UN peace operations, promote the deployment of high-calibre corrections experts, and facilitate the exchange of good practices among international corrections experts on addressing challenges in conflict and post-conflict settings.

Canada (as represented by the Correctional Service of Canada (CSC)), and the Permanent Mission of Canada, has been a member of the GOF since 2011; in December 2020, Canada became one of the co-chairs of the Group, alongside Sweden and Burkina Faso. CSC also is a member of the virtual secretariat, providing administrative support and coordination for the Group.

Shared priorities with WPS include:

CSC continues to lead the provision of correctional training initiatives to further gender-responsivity and leadership and management for women. Striving for gender-balance among participants and the facilitator cadre is a central component in all training delivery models.

The COVID-19 pandemic has Throughout the ongoing health pandemic, CSC’s ongoing priority remained ensuring the health and safety of the Canadian public, employees, inmates, and their families. To this end, based on public health information, CSC established an Integrated Risk Management Framework (IRMF) to ensure the safe resumption of services, programs, and interventions for offenders.

CSC officials continued to engage with international partners and stakeholders. CSC adapted to the changing realities including through participating and presenting virtually in numerous conferences and events, including on topics related to inmate health, technology, finance and policy. During fiscal year 2020-2021, CSC presented at six international conferences and participated in another, in a virtual capacity.

CSC continued to maintain close relationships with international organizations such as the International Corrections and Prisons Association (ICPA), Asia-Pacific Conference of Correctional Administrators (APCCA) and the United Nations Office on Drugs and Crime (UNODC), notably through contributions to their publications and events.

CSC continued to contribute to the GoF by providing expert advice; this included collaboration with the Group towards the approval of an updated Terms of Reference to reflect the new GoF political advocacy component and details pertaining to other secretarial functions. Due to the pandemic, the delivery of training sessions and technical assistance projects have been temporarily put on hold.

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