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The Shadow Pandemic: Stopping Coercive and Controlling Behaviour in Intimate Relationships

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The Shadow Pandemic: Stopping Coercive and Controlling Behaviour in Intimate Relationships THE SHADOW PANDEMIC: STOPPING COERCIVE AND CONTROLLING BEHAVIOUR IN INTIMATE RELATIONSHIPS Report of the Standing Committee on Justice and Human Rights Iqra Khalid, Chair APRIL 2021 43rd PARLIAMENT, 2nd SESSION Published under the authority of the Speaker of the House of Commons SPEAKER’S PERMISSION The proceedings of the House of Commons and its Committees are hereby made available to provide greater public access. The parliamentary privilege of the House of Commons to control the publication and broadcast of the proceedings of the House of Commons and its Committees is nonetheless reserved. All copyrights therein are also reserved. Reproduction of the proceedings of the House of Commons and its Committees, in whole or in part and in any medium, is hereby permitted provided that the reproduction is accurate and is not presented as official. This permission does not extend to reproduction, distribution or use for commercial purpose of financial gain. Reproduction or use outside this permission or without authorization may be treated as copyright infringement in accordance with the Copyright Act. Authorization may be obtained on written application to the Office of the Speaker of the House of Commons. Reproduction in accordance with this permission does not constitute publication under the authority of the House of Commons. The absolute privilege that applies to the proceedings of the House of Commons does not extend to these permitted reproductions. Where a reproduction includes briefs to a Standing Committee of the House of Commons, authorization for reproduction may be required from the authors in accordance with the Copyright Act. Nothing in this permission abrogates or derogates from the privileges, powers, immunities and rights of the House of Commons and its Committees. For greater certainty, this permission does not affect the prohibition against impeaching or questioning the proceedings of the House of Commons in courts or otherwise. The House of Commons retains the right and privilege to find users in contempt of Parliament if a reproduction or use is not in accordance with this permission. Also available on the House of Commons website at the following address: www.ourcommons.ca THE SHADOW PANDEMIC: STOPPING COERCIVE AND CONTROLLING BEHAVIOUR IN INTIMATE RELATIONSHIPS Report of the Standing Committee on Justice and Human Rights Iqra Khalid Chair APRIL 2021 43rd PARLIAMENT, 2nd SESSION NOTICE TO READER Reports from committees presented to the House of Commons Presenting a report to the House is the way a committee makes public its findings and recommendations on a particular topic. Substantive reports on a subject-matter study usually contain a synopsis of the testimony heard, the recommendations made by the committee, as well as the reasons for those recommendations. STANDING COMMITTEE ON JUSTICE AND HUMAN RIGHTS CHAIR Iqra Khalid VICE-CHAIRS Hon. Rob Moore Rhéal Éloi Fortin MEMBERS Élisabeth Brière Michael Cooper Hon. Kerry-Lynne D. Findlay Randall Garrison Mike Kelloway Chris Lewis James Maloney Randeep Sarai Arif Virani OTHER MEMBERS OF PARLIAMENT WHO PARTICIPATED Julie Dabrusin Pam Damoff Francis Drouin Peter Fragiskatos Brian Masse Ken McDonald Jeremy Patzer Cathay Wagantall CLERK OF THE COMMITTEE Marc-Olivier Girard iii LIBRARY OF PARLIAMENT Parliamentary Information, Education and Research Services Lyne Casavant, Analyst Julia Nicol, Analyst Dana Phillips, Analyst iv THE STANDING COMMITTEE ON JUSTICE AND HUMAN RIGHTS has the honour to present its NINTH REPORT Pursuant to its mandate under Standing Order 108(2), the committee has studied the issue of controlling or coercive conduct within intimate relationships and has agreed to report the following: v TABLE OF CONTENTS LIST OF RECOMMENDATIONS .......................................................................................................... 1 THE SHADOW PANDEMIC: STOPPING COERCIVE AND CONTROLLING BEHAVIOUR IN INTIMATE RELATIONSHIPS............................................................................... 3 Chapter 1 – Introduction .............................................................................................................. 3 Chapter 2 – The Canadian Experience: The Shadow Pandemic .................................... 4 Incidence and Nature of Domestic Violence, Including Coercive and Controlling Behaviour ............................................................................................................ 4 Prevalence of Domestic Violence in Canada ........................................................... 4 Defining Coercive and Controlling Behaviour in the Context of Domestic Violence ............................................................................................................. 6 Harms Resulting from Coercive and Controlling Behaviour ............................ 9 The Impact of the COVID-19 Pandemic on Domestic Violence ............................ 12 Heightened Risks of Domestic Violence ................................................................ 12 Challenges in Accessing Services During the COVID-19 Pandemic ............ 13 Chapter 3 – The Current Legal System Response ............................................................ 17 Existing Protections and Remedies in Canadian Law ............................................. 17 Problems with the Law’s Implementation in Practice ............................................ 18 Underreporting to the Police ..................................................................................... 18 Myths, Stereotypes, and the Failure to Recognize Women’s Experiences ...................................................................................................................... 20 Underenforcement, Ineffective Protection, and Lack of Access to Courts ............................................................................................................................. 21 Evidentiary Challenges and the Potential for Revictimization ..................... 22 Gaps in the Law ...................................................................................................................... 23 Chapter 4 – Potential Solutions: What the Committee Heard ..................................... 25 Experiences in Other Countries ....................................................................................... 25 Pros and Cons of Criminalizing Coercive and Controlling Behaviour ............... 27 Recommendations Regarding Criminal Code Amendments ................................. 29 vii Recommendations for Additional Measures in Conjunction with Criminalization ....................................................................................................................... 31 National Coordination and Review ......................................................................... 31 Public Education and Training for Justice System Actors .............................. 32 Addressing the Needs of Families and Communities Experiencing Domestic Violence .......................................................................................................... 34 Chapter 5 – Conclusions and Recommendations of the Committee ......................... 35 APPENDIX A LIST OF WITNESSES ................................................................................................ 37 APPENDIX B LIST OF BRIEFS .......................................................................................................... 41 MINUTES OF PROCEEDINGS ........................................................................................................... 43 viii LIST OF RECOMMENDATIONS As a result of their deliberations committees may make recommendations which they include in their reports for the consideration of the House of Commons or the Government. Recommendations related to this study are listed below. Recommendation 1 That the House of Commons acknowledge the significant harms coercive and controlling behaviour causes in intimate partner relationships, recognize that these harms are not captured in criminal law at present, and further recognize that physical violence in intimate partner relationships is almost always preceded by a pattern of coercive and controlling behaviour. ................................... 35 Recommendation 2 That the Minister of Justice engage with his provincial and territorial counterparts to initiate a taskforce of experts with a mandate to review existing federal criminal legislation using a gender-based analysis plus and other inclusive measures and make recommendations concerning the drafting of government legislation regarding a coercive and controlling behaviour offence in the Criminal Code, considering Bill C-247 as possible language for such an offence, and related measures to meet the needs of victims. This taskforce should report to the Minister within 12 months of formation. ................... 35 Recommendation 3 That the House of Commons call on the federal government, the provinces and territories to implement measures to combat the challenges presented by the justice system for victims of coercive and controlling behaviour and intimate partner violence, and in particular for women who are Indigenous, racialized, or living in poverty, with the clear objective of avoiding revictimization and unintended capture of victims in the charging process and further calls on the federal government to fund measures to support all victims of coercive and controlling behaviour and intimate partner violence through court processes..........
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