National victims roundtable on the Canadian Victims Bill of Rights, 2024 to 2025

Summary report - April 2026

Table of contents

Introduction

On March 3rd and 4th, 2025, Public Safety Canada's (PS) National Office for Victims (NOV) hosted a National Victims Roundtable. Representatives from the NOV, Correctional Service of Canada (CSC), the Parole Board of Canada (PBC), victim advocates, survivors, service providers, and partners attended the Roundtable discussions. The purpose of the Roundtable was to:

The roundtable also served as a forum for victim stakeholders to ask questions and network with fellow victim advocates from across Canada.

This report reflects the discussions and perspectives shared during the Roundtable and is intended to capture the range of views expressed by participants. It does not necessarily represent or commit Public Safety to specific actions or decisions, the information and insights contained herein may be used to help inform future policy development and procedural considerations.

What's New

NOV, CSC, and PBC provided updates on their work since the last Roundtable, which occurred in 2023.

NOV

NOV is celebrating its 20th anniversary in 2025. Since its establishment, NOV has been providing a victim-focused perspective on correctional policy, developing essential information products, coordinating efforts within the Public Safety Portfolio, and addressing the unique needs of vulnerable communities.

Over the past two decades, NOV has achieved several significant milestones, including:

Currently, NOV is co-developing a federal corrections and conditional release toolkit for victims and survivors of crime.

CSC

Since 2023, CSC has been updating policies and process to better serve victims, including:

Currently, CSC is working to update the Correctional Plan Progress Report (CPPR) template and accompanying Guide for Victims.

PBC

PBC continues to monitor the implementation of hybrid hearings to ensure they meet the needs of all participants.

Additionally, the Board has updated their guidance based on recent engagements to support the harmonization of services for all registered victims. This includes enhancements to their Victim Procedures, the Victim Registration Tool, and the Victim Statement Checklist. These updates aim to provide a more streamlined and supportive experience for victims.

Victims Toolkit – Content

The PS Portfolio and its partners have been making progress towards creating a one-stop shop for information about victims' rights in federal corrections and conditional release. However, there is still much work to be done. This need has been highlighted in various reports, media articles, and Parliamentary Committee discussions in both the House of Commons and the Senate. For example, during their study on supporting victims of crime, the House of Commons Standing Committee on Justice and Human Rights (JUST) heard about the need for a more centralized, "one-stop" approach to help victims more easily access information on available services and supports, including through improved online portals and coordinated referrals.

Despite efforts to explain the services provided by CSC and PBC, there remains a general lack of clarity about how legislation interacts with regulations, policies, and guidelines. To address this, a document was developed to consolidate the most essential information, which is referred to as a toolkit throughout this summary. The goal of the toolkit is to explain the complexities of the federal corrections and conditional release system; including some of the legal principles that have led to these complexities, in an easily understandable format, aiding victims in exercising their rights within this system.

During the breakout sessions participants were asked to review the content of the toolkit if they had not already reviewed the material. They were then asked to answer

What we heard

Is this the right level of detail?

Purpose

Participants emphasized the need for more careful consideration in identifying the target audience for the toolkit, doing so will allow the content to be tailored to their specific needs and preferences. Participants emphasized that the current draft is more appropriate for victim service providers rather than victims. We heard that if victims are the intended audience, the document should:

Terminology

Participants emphasized the importance of using clear and straightforward terminology in the toolkit to ensure it is easily understood by all users. They stressed that special attention should be given to the French version, ensuring it maintains the same level of simplicity and accuracy as the English version. This is crucial for effective communication and accessibility across both official languages.

Moreover, participants highlighted the need for the information to be presented in a trauma-informed manner. This approach involves using compassionate and sensitive language that acknowledges the emotional and psychological impact of trauma on victims. By doing so, the toolkit can provide information that is not only informative but presented in a manner that is empathetic and respectful of the victims' experiences.

To achieve these goals, participants recommended involving language experts and trauma-informed care professionals in the development process. This collaborative effort would help ensure that the toolkit is both linguistically accurate and trauma-informed, ultimately enhancing its effectiveness in assisting victims.

What is missing?

Access to Information

Participants remarked that the draft toolkit currently lacks crucial information regarding immediate access to support services. It is essential to provide clear guidance on where victims can find immediate assistance, including hotlines, shelters, and counseling services. Additionally, continuity of care is a vital aspect that needs to be addressed. As offenders transition from court proceedings to corrections and parole, it is important to outline how victims can continue to access information and support throughout these stages.

Integrating Provincial/Territorial (P/T) and Local Resources

Participants have noted that the toolkit is deficient in information beyond the federal scope. There is a strong interest in including details about additional resources available at the P/T and local levels, as well as non-governmental organizations that offer support to victims. This expansion would ensure that victims have a comprehensive understanding of all available avenues for assistance.

Transfers and changes in security level

Participants expressed a desire for greater transparency and involvement in decisions related to offender transfers between institutions and/or changes in security levels. Specifically, they wanted to understand the reasons behind such transfers—whether they are based on institutional capacity, offender behavior, rehabilitation progress, or other factors. There was also interest in knowing when and how victims can provide input that may be considered in these decisions, particularly in cases where a transfer could impact their sense of safety or well-being. Clearer communication and opportunities for victim input would help ensure that transfer decisions are made with a more balanced consideration of both offender rehabilitation and victim concerns.

Victim Representatives/ Navigator

Participants expressed interest in the creation of a dedicated victim representative role within the justice and corrections systems. This role would serve as a consistent point of contact for victims, helping them navigate complex processes, advocate for their rights, and ensure their voices are meaningfully included in decisions that affect them—such as parole hearings, transfers, and release conditions. Participants felt that a victim representative could help bridge communication gaps between victims and justice officials, provide trauma-informed support, and ensure that victim perspectives are not overlooked in a system that they feel often prioritizes offender rehabilitation. Establishing such a role would demonstrate a commitment to victim-centered justice and help build trust in the system.

Requesting conditions

Participants expressed a need for clearer guidance on how to request specific conditions—such as no-contact orders or geographic restrictions—during parole and release processes. Many are unsure of the appropriate channels, timing, or language to use when making these requests. Additionally, participants wanted more transparency around how and why certain conditions are imposed or denied, and how their safety concerns are weighed in those decisions. Improving communication and support around this process would empower victims to advocate for their safety and well-being more effectively.

Revocation and Suspension

There was a strong interest in better understanding the process and implications of revocation or suspension of conditional releases. Participants wanted to know what types of violations or behaviors could lead to a suspension, how quickly action is taken, and what role—if any—victims can play in these proceedings. Clarifying the rights of victims during these processes would help ensure they are not left in the dark during critical developments.

Weight of Victim Statements

Participants sought greater insight into how victim statements are used in decision-making by the CSC and PBC. While many victims take great care in preparing these statements, they are often left wondering whether their input had any real influence. Clarifying how these statements are reviewed, what aspects are considered most impactful, and how they can shape outcomes would validate victims' efforts and reinforce the importance of their voices in the justice process.

Pathways Program

Participants expressed a strong interest in gaining more information about CSC's Pathways program, particularly its structure, goals, and how it supports Indigenous offenders through culturally grounded healing. Many felt that the program lacks transparency and that communities are not adequately informed about its implementation or outcomes. Concerns were also raised about the Elders involved in the program, with participants noting that CSC Elders may not necessarily represent the specific cultural or spiritual traditions of the local Indigenous communities to which the offenders or victims belong. This disconnect can undermine the authenticity and effectiveness of the healing process. As a result, participants emphasized the importance of CSC Elders consulting with local Elders from both the offenders' and victims' communities. Doing so would ensure that cultural teachings and community values are respected, and that the program is truly reflective of the traditions and needs of those it is intended to serve.

Indigenous Considerations

Participants also shared numerous recommendations emphasizing the importance of considering Indigenous communities. These recommendations highlight the need for culturally sensitive approaches and the integration of Indigenous perspectives to ensure the toolkit is effective and respectful.

We heard that the integration of the United Nations Declaration on the Rights of Indigenous Peoples (UNDRIP) is essential in ensuring that the rights and dignity of Indigenous peoples are upheld. UNDRIP provides a comprehensive framework for recognizing and protecting the rights of Indigenous peoples, including their cultural, social, and economic rights. This framework should be a cornerstone in the development and implementation of any toolkit or policy affecting Indigenous communities.

The Truth and Reconciliation Commission (TRC) of Canada has highlighted the importance of acknowledging and addressing the historical and ongoing impacts of colonization on Indigenous peoples. The TRC's final report includes 94 Calls to Action, which provide a roadmap for reconciliation and the restoration of justice for Indigenous communities. These Calls to Action should be referenced and integrated into the toolkit to ensure it aligns with the broader goals of reconciliation.

We also heard that it is important to recognize that the term "victim" does not resonate with everyone. It was recommended that Indigenous communities are consulted to identify appropriate terminology reflective of their experiences and perspectives. This approach ensures that the language used is respectful and culturally appropriate.

Indigenous communities often have strong oral traditions, which participants believe is ai crucial element to consider when determining how information will be communicated. They recommended incorporating oral storytelling methods, using audio or video formats, and ensuring that materials are accessible in ways that align with these traditions.

It was suggested that information about healing lodges be included in the toolkit. Healing lodges offer culturally relevant rehabilitation and support services for Indigenous individuals, using traditional healing practices alongside contemporary therapeutic interventions. These lodges play a vital role in the healing and reintegration process for federal offenders.

Ensuring the safety of Indigenous communities when individuals are released into them is paramount. This involves working closely with the communities to develop safety plans and protocols that address their specific needs and concerns. Section 81 of the Corrections and Conditional Release Act Indigenous communities, in which an offender has expressed an interest in being released, an opportunity to propose a plan for the offender's release and reintegration, ensuring that the community is prepared and that safety measures are in place.

The toolkit should also address the unique experiences and traumas that Indigenous peoples have faced. This includes acknowledging the historical and intergenerational trauma resulting from colonization, residential schools, and other systemic injustices. Providing trauma-informed care and support is essential in addressing these deep-seated issues.

Finally, building and maintaining rapport with Indigenous communities is fundamental. This involves ongoing engagement, transparency, and respect for their sovereignty and traditions. Developing meaningful partnerships and ensuring that Indigenous voices are central to the decision-making processes is needed to foster trust and collaboration.

By addressing these considerations, the toolkit can be more effective, respectful, and supportive of Indigenous communities.

Victims Toolkit – Presentation

This breakout session focused on refining the Toolkit's content. Participants were tasked with evaluating how to present the final version, emphasizing accessibility, plain language, and effective dissemination. Colleagues from PS Communications were invited to attend this session to gain firsthand insights into victims' needs and contribute their expertise.

What we heard

Packaging and Accessibility

It is essential to explore multiple ways to present the information – information should not just be digital. For example, in Northern Ontario and rural communities, accessing digital information can be challenging due to limited computer and internet access, so alternatives like physical copies and radio should be considered. Engaging more with Tribal Councils, urban Friendship centers, and Crown Witness Coordinators in the Territories can help bridge these gaps.

The expansion of accessibility features was a key point of discussion. Participants suggested using closed captions and American Sign Language, wherever possible. Additionally, to broaden the Toolkit's reach, participants recommended leveraging the Victims' Portal to share information with victims directly. Victim Service Providers suggested partnering with their organizations to create and share via social media in order to amplify its reach. They further suggested having victims participate in the videos to lend credibility to them.

Audience and Feedback

When developing resources, it's essential to identify the target audience and prioritize their needs. To ensure the Toolkit is truly victim-centered, frame the information around why it matters to victims, making it relevant and impactful. Additionally, using conversational language can enhance understanding, as spoken language often differs from written language. This plain language approach is especially helpful for newcomers to Canada and those unfamiliar with court and government systems.

Collaboration

Participants recommended the development of an advisory group to offer valuable insights and expertise from various stakeholders, including those with lived experiences, local knowledge, and professional backgrounds. This will help to ensure that the toolkit is well-rounded and consider multiple viewpoints.

Community Engagement

Effective community engagement involves understanding where people gather and share information. Identifying these key locations can help in disseminating important resources and messages. Community centers, local events, and social gatherings are often prime spots for sharing information directly with community members.

Television is another valuable source for reaching a broad audience. It provides a platform for sharing information widely and can be particularly effective for public awareness campaigns. Utilizing TV broadcasts can ensure important messages reach people in their homes.

Crisis intervention teams within communities can also play a crucial role in distributing information, especially during times of need. These teams are often trusted sources of support and can help ensure that critical information reaches those who need it most.

In Indigenous communities, leveraging the wisdom and influence of knowledge keepers, elders, and informal Grandmother Committees is essential. These respected figures can ensure that information is shared in a culturally sensitive and trusted manner, fostering greater acceptance and understanding within the community.

Victim Experiences: Beyond the Toolkit

Victims were also encouraged to share their personal experiences with the criminal justice system during the breakout sessions. These sessions offered a valuable opportunity for victims to voice their thoughts on potential improvements and reforms. By fostering an open and supportive environment, the breakout sessions aimed to gather insightful feedback that could inform future enhancements to the system, ensuring it better meets the needs and expectations of victims.

Victim First Approach at Parole Hearings

A victim-centered approach should be applied to the parole process. This would include:

Participants expressed the need to change the make-up of Parole Board Members by:

This shift is essential to ensure that the Board is both reflective of the community it serves and informed by the real-life experiences of those most impacted by its decisions, ultimately leading to a more inclusive, empathetic, and effective organization.

Hybrid Hearings

Some victims highlighted the shortcomings of hybrid hearings. Victims have reported that hybrid hearings are imposed rather than offered as an option, raising issues regarding access to necessary technology, especially in situations where financial support is not available. Although Justice Canada's Victims Fund is available to support these individuals, access to a computer and internet is required to fill out the application. This creates an additional barrier for those without reliable technology.

Moreover, the inability to observe the offender's body language, which holds significant meaning in Indigenous cultures, further complicates the process. Indigenous cultures value the nuances of non-verbal communication, which can convey important messages and emotions. The limited view provided by cameras, focusing only on the upper body, fails to capture these subtleties, potentially diminishing the effectiveness of the communication and the overall experience for Indigenous participants.

Overall participants expressed interest in a more flexible and inclusive approach to hearings, one that respects and accommodates the diverse needs and cultural practices of all victims. Stakeholders expressed that by addressing these issues, the parole process can move closer to achieving a genuinely victim-centered approach.

Postponing Parole Hearings

Participants expressed a strong desire to see limits placed on how many times an offender can cancel or postpone a parole hearing, emphasizing that repeated cancellations can retraumatize victims and disrupt their lives, especially when they have made travel arrangements to attend. Some participants felt that successive postponements were being used deliberately to inflict additional emotional distress. There was notable frustration over the lack of transparency, as victims are not informed of the reasons for hearing postponements, unlike the access they have to reasons for waivers. While the PBC clarified that board members have the discretion to proceed with a hearing if they believe a postponement is inappropriate, they also noted that current legislation does not permit them to share the reasons for postponements, which are often due to outstanding charges or pending programming. Participants expressed interest in understanding the official policy on postponements, including whether there are limits on the number of times a hearing can be delayed and what constitutes acceptable grounds for doing so.

Victim Statements

Participants expressed a need for greater transparency regarding the weight of victim statements in the parole decision-making process. They emphasized that understanding how these statements influence decisions is crucial for victims. Additionally, participants suggested that victims should have the ability to submit their statements in their first language to ensure accessibility and inclusivity. To further support children, participants recommended providing an option where only the Parole Board member reads the victim statement submitted by their guardian, without sharing it with the offender. Footnote 1 They believe that this measure would minimize potential trauma and discomfort for young victims, ensuring their voices are heard in a safe and supportive manner.

Community (impact) statements

Participants expressed a need for a clearer understanding of community impact statements. These statements are a vital tool for communities to articulate the broader social, emotional, and cultural effects of crime, particularly in cases involving systemic violence or harm to marginalized groups. By improving awareness and guidance around community impact statements, individuals and communities can more effectively participate in justice processes, ensuring their voices are heard and their experiences acknowledged in decisions related to sentencing, parole, and rehabilitation.

Continuity of Care

Ensuring continuity of care for victims between PT or community service providers and federal corrections and parole information services is essential to maintaining consistent, trauma-informed support throughout the justice process. This includes establishing clear pathways for communication and collaboration with Family Information Liaison Units (FILUs), which provide specialized assistance to families of missing and murdered Indigenous women, girls, and 2SLGBTQI+ people. Strengthening these connections helps ensure that victims and their families do not fall through the cracks during transitions between systems, and that their emotional, cultural, and informational needs are met in a timely and respectful manner.

Raising Awareness

Participants noted that they did not receive crucial information about their rights from the police. Although the RCMP has recently introduced a victims' rights card, the distribution and tracking of these cards remain unclear to victims. Implementing a QR code on the victims' rights card could significantly enhance accessibility and ensure victims have immediate access to essential information. A QR code could link to a comprehensive online resource, providing detailed explanations of their rights, available support services, and contact information for further assistance. Such a measure would help bridge the information gap and empower victims with the knowledge they need.

Right to Appeal and Complaints

Participants noted that while victims have rights under the Canadian Victims Bill of Rights (CVBR), the legislation itself removes their right to a remedy if their rights are infringed or denied, as outlined in sections 28 Footnote 2 and 29 Footnote 3. The only remedy available to victims is to file a complaint with the federal department, agency or body whom they believe infringed or denied their right to seek a remedy and if not satisfied to follow up with the Office of the Federal Ombudsperson for Victims of Crime. Participants raised concerns about the complaint process, highlighting that victim complaints are investigated by the same organization that the complaint is about, which they identified as a conflict of interest. Participants perceived this situation as undermining the effectiveness of the complaint mechanism and felt it called into question the impartiality of the investigations.

Correctional Plan Progress Report (CPPR)

Participants expressed significant concerns about the CPPR, noting that it is not well understood and often lacks clarity and meaningful content for victims. Many victims are unsure of what information or sources are used to build the correctional plan, and they feel that CPPR itself frequently provides only sparse details, such as lists of treatment programs without any explanation of their purpose or relevance. Participants shared that they often learn more about an offender's progress during parole hearings than from the CPPR, which undermines its usefulness. Additionally, the requirement for victims to actively request the CPPR creates a barrier to access. To improve the CPPR, participants suggested that updates be timed to coincide with key decision points, such as offender reviews and hearings, so that victims have the most current information when preparing their victim statements. They also emphasized the need for more context within the CPPR, such as clarifying that institutional misconduct refers to rule-breaking rather than criminal offences, and including more detailed information about the mental health care offenders are receiving. Furthermore, participants recommended that Victim Services Officers review CPPRs with victims to help interpret the information, explain what offenders must do to be considered for parole, and ensure victims understand the significance of the content. Overall, participants stressed the importance of receiving the right information at the right time, presented in a way that is accessible, transparent, and supportive of their role in the justice process.

Context

Participants emphasized the importance of acknowledging the broader context in which the justice and corrections systems operate, particularly the legacy and ongoing impacts of colonialism. They stressed that the system should be corrective and rehabilitative, not punitive in ways that further harm or marginalize individuals, especially Indigenous peoples and other historically underserved communities.

Indigenous Victim Representation in the Federal Corrections and Conditional Release System Panel

Panelists were invited to share their knowledge of Indigenous perspectives and experiences to explore how to:

The panel consisted of a representative from the FILU, the Native Women's Association of Canada, and the Ontario Native Women's Association. A summary of the panelists' input has been integrated throughout this report and includes the summary below.

What we Heard

Systemic Discrimination

The panel highlighted their perspective on the Eurocentric racism and systemic discrimination faced by Indigenous peoples when engaging with the criminal justice system, leading to Indigenous people being underserved and over-policed. They emphasized the Navajo peacemaker approach as an example of a traditional method of conflict resolution. This approach fosters mutual respect and understanding, promoting healing and harmony within communities.

Victim Fatigue

Panelists shared that colonialism and its systems have created a cycle of revictimization for Indigenous peoples, particularly pushing Indigenous women to the margins. They are expected to access services that they do not trust and that do not consider their language, culture, or experiences. This has led to victim fatigue. Panelists suggested it is essential to sit with Indigenous communities, listen to their stories, and ask them what services they need.

Engagement and Trust

Panelists also stressed the need for integrating traditional Indigenous practices into mainstream services. They emphasized that these services should be led by Indigenous representatives to build trust. Additionally, panelists highlighted the importance of policy makers actively engaging with Indigenous communities to co-develop services, prioritizing traditional practices first and then incorporating elements from Western systems. True Indigenous practices are distinct from merely pulling Indigenous elements into Western frameworks. They underscored the critical need for culturally sensitive and community-led approaches to victim services in Canada.

Culturally appropriate supports and healing

The panel highlighted the importance of introducing culturally appropriate supports for Indigenous victims and survivors. Panelists indicated that Indigenous communication methods, such as storytelling and body language, are often not respected in the justice system, pushing Indigenous people further away from supports. They invited policymakers to engage directly with Indigenous communities when developing services.

PBC Research Presentation: Victims Statements in Conditional Release Requests and Responses

During the conditional release process victims can describe the ongoing impact of the crime, express safety concerns, and request special conditions for their protection through their Victim Statements. PBC presented the findings of a study that aimed to understand the frequency of special condition requests and how often PBC imposes these conditions. Results showed that:

Overall, in the majority of cases PBC imposes special conditions when there is a victim statement, though the specific conditions may not always match the requests. This highlights a gap between victim expectations and the conditions imposed, underscoring the importance of continued engagement and transparency. As part of its next steps, PBC plans to continue sharing the results of its research, gather feedback, and continue raising awareness about submitting victim statements.

Conclusion

The Roundtable served as a valuable opportunity to engage with stakeholders and gather meaningful input on the development of the draft toolkit. Moving forward, next steps include reimagining the toolkit based on what we heard, including revising the draft toolkit based on the feedback received and conducting further consultations to ensure the final product(s) meet the needs of the target audiences (i.e., victims and/or service providers). Additionally, any comments or suggestions that fall outside the scope of the PS Portfolio will be shared with the appropriate departments/agencies to ensure a coordinated and comprehensive response.

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