Canada–Manitoba transfer payment agreement on the implementation of the National Action Plan to End Gender Based Violence

Agreement

Between:
His Majesty The King in Right of Canada, as represented by the Minister for Women and Gender Equality and including any person duly authorized to represent it (hereinafter referred to as “Canada”)

And:
His Majesty The King in Right of Manitoba as represented by the Minister responsible for Gender Equity and including any person duly authorized to represent it (hereinafter referred to as “Manitoba”)

Hereinafter referred to collectively as the “Parties”.

 

Whereas, Canada’s Minister for Women and Gender Equality’s powers, duties and functions include the advancement of equality, including social, economic and political equality, with respect to sex, sexual orientation, and gender identity or expression;

Whereas, the mandate of the Government of Manitoba’s Minister responsible for Gender Equity is to support the Gender Equity Manitoba Secretariat in its work to advance gender equity and ensure a safe and equitable Manitoba for people of all genders, by addressing barriers and eliminating gender-based violence;

Whereas, preventing and addressing gender-based violence necessitates coordinated and collaborative actions from federal, provincial, and territorial governments, each working within their respective jurisdictional authorities, in collaboration with survivors, Indigenous leaders and organizations, civil society, front-line service providers, municipalities, the private sector and researchers;

Whereas, on November 8th, 2022, at the 40th Annual Meeting of Federal-Provincial-Territorial (FPT) Ministers Responsible for the Status of Women, Ministers endorsed the National Action Plan to End Gender-Based Violence (hereinafter referred to as the “NAP to End GBV”); a ten-year, collaborative approach to ending gender-based violence (hereinafter referred to as “GBV”); 

Whereas, joint efforts in support of the NAP to End GBV will align with and complement the Truth and Reconciliation Commission’s Calls to Action and the National Inquiry into Missing and Murdered Indigenous Women and Girls’ Calls for Justice, and Manitoba’s Framework: Addressing Gender-Based Violence; 

Whereas, the federal government’s Budget 2022 provided $539.3 million over five years (2022-2023 to 2026-2027) to the Department for Women and Gender Equality Canada, including $525 million to enable provinces and territories to supplement and enhance services and supports within their jurisdictions to prevent gender-based violence and support survivors; 

Whereas, Manitoba already supports efforts to prevent GBV and supports victims and families;

Whereas, Canada wishes to supplement Manitoba’s investments, including new and expanded actions to end GBV under the collaborative framework of the NAP to End GBV, based on Manitoba’s priorities, but including investment in the areas defined as Priorities in Section 2.10;

Whereas, section 5 of the Department for Women and Gender Equality Act authorizes the Minister for Women and Gender Equality to, with the approval of the Governor in Council, enter into a Transfer Payment Agreement on the Implementation of the National Action Plan to End Gender- Based Violence with Manitoba;

Whereas, the Manitoba Minister responsible for Gender Equity may, for and on behalf of Manitoba, enter into agreements with the Government of Canada; 

and whereas Canada’s funding under this Agreement will be distributed to Manitoba in accordance with the terms and conditions of the Department for Women and Gender Equality’s (hereinafter referred to as “WAGE”) Equality for Sex, Sexual Orientation, Gender Identity and Expression Program: A Grants and Contributions Program.

Now therefore, Canada and Manitoba agree as follows:

1. Purpose of agreement

The purpose of this Agreement is to support Manitoba’s implementation of its actions under the NAP to End GBV (Annex A) so that collectively, the vision of the NAP to End GBV can be advanced - “A Canada free of gender-based violence. A Canada that supports victims, survivors and their families, no matter where they live”.

2. Definitions

The following expressions, used in this Agreement, shall have the scope defined below:

2.1 “Agreement” means this binding Transfer Payment Agreement on the Implementation of the National Action Plan to End Gender Based Violence, including its Annexes and Schedules, as may be amended from time to time,

• Annexes A and D by the Federal Provincial Territorial Forum of Ministers responsible for the Status of Women, and
• Schedules B and C by the Parties to this Agreement. 

2.2 “Days” means calendar days.

2.3 “Designated Official” means the person(s) identified by the Party in section 18.2 with the authority, responsibility, and integrity to represent the Party and perform responsibilities related to implementing the Agreement.

2.4 “Effective Date” means the date this Agreement comes into force, which is the date the second Party signs the Agreement.

2.5 “Eligible Expenditures” means expenses related to actions in Manitoba’s Implementation Plan (Schedule B) for which federal funding can be used in accordance with this Agreement.

2.6 “Fiscal Year” means the period commencing on April 1 of any calendar year and terminating on March 31 of the immediately following calendar year.

2.7 “GBV (Gender-Based Violence)” means violence perpetrated against someone based on their gender, gender expression, gender identity, or perceived gender. It takes many forms, including physical, sexual, psychological, emotional, and financial abuse as well as technology-facilitated violence.

2.8 “NAP to End GBV” means the National Action Plan to End Gender-Based Violence (attached as Annex A), a ten-year, collaborative framework for a national approach to ending GBV and its impacts in Canada through opportunities for action under five pillars and a foundation:

• Pillar 1 - Support for survivors and their families
• Pillar 2 - Prevention 
• Pillar 3 - Responsive justice system
• Pillar 4 - Implementing Indigenous-led approaches
• Pillar 5 - Social infrastructure and enabling environment
• The Foundation (leadership, coordination and engagement; data, research and knowledge mobilization; and, monitoring, evaluation and reporting)

2.9 “In-kind Contributions” means goods and services provided instead of money, or cash-equivalent goods and services Manitoba will contribute to actions under the NAP to End GBV. In-kind contributions could include, but are not limited to, rental space in provincially-owned buildings given to an organization at no cost, administrative support provided by provincial employees, or providing materials to organizations.

2.10 “Priorities” mean the following three, broad priority areas, and “Priority” shall mean any one of them:

1. Increasing prevention efforts – to stem the tide of downstream costs and support sustainability over the longer-term
2. Reaching underserved and/or most at-risk populations – to ensure that services and supports are accessible, appropriate, and tailored to specific needs; and
3. Stabilizing the GBV sector – to enable the ongoing and effective delivery of essential GBV services across the country.

2.11 “Manitoba’s Implementation Plan” means the four-year actions of Manitoba to implement the NAP to End GBV in its jurisdiction, agreed to by the Parties upon signing this Agreement, attached as Schedule B and as amended as needed in accordance with section 13.2. Manitoba’s Implementation Plan outlines:

• Actions under the five pillars and the foundation of the NAP to End GBV as prioritized by Manitoba. While all Manitoba’s actions must fall under the five pillars and foundation of the NAP to End GBV, Manitoba’s Implementation Plan does not have to include actions in all five pillars and foundation in any one year of this Agreement. 
• Actions that support the three Priorities, as outlined in Section 4.2.4;
• Connections between Manitoba’s Implementation Plan and other work in its jurisdiction in addressing GBV;
• Outcomes expected to be achieved by the actions; and
• A data collection plan to fulfill Manitoba’s obligations for reporting (outlined in Section 7.3).

2.12 “Ultimate Recipients” means organizations providing actions to address GBV under Manitoba’s Implementation Plan.

3. Duration of agreement

3.1 This Agreement shall come into force on the Effective Date and shall end on March 31, 2027, unless terminated before then by Canada or Manitoba in accordance with this Agreement.

3.2 Subject to termination, this Agreement covers the activities described in Schedule B for the period commencing on April 1, 2023 and ending on March 31, 2027. Unless otherwise pre-authorized by Canada, only goods and services rendered within this period shall be considered as Eligible Expenditures.

3.3 All obligations of the Parties herein which, expressly or by their nature, survive termination or expiry of this Agreement, shall survive until and unless they are fulfilled or by their nature expire.

4. Areas of investment

4.1 Cost sharing

4.1.1 The federal allocation under this Agreement, up to the maximum amount allocated to Manitoba in Section 5.1.1, shall be matched by Manitoba through an overall, 50-50 sharing of costs. Canada’s allocation shall not exceed 50% of Manitoba’s total funding (Manitoba’s contribution plus the federal allocation) for the purpose of this Agreement. 

4.1.2 Manitoba’s cost share can include:

1. new investments;
2. existing GBV-related funding or investments; and,
3. where agreed to in writing by Canada, In-kind Contributions. 

4.1.3 A higher federal cost share may be used for Manitoba’s actions supporting the Priorities, within an overall 50-50 cost share ratio for the full value of the Agreement.

4.1.4 Any funds identified by Manitoba as constituting any part of its 50% cost share under this Agreement must not be used as Manitoba’s cost share or cost matching in any other agreement with the Government of Canada.

4.2 Use of funds

4.2.1 Canada and Manitoba agree that federal funds provided under this Agreement will only be used by Manitoba for Eligible Expenditures included in Manitoba’s Implementation Plan (Schedule B) and align with the guiding principles of the NAP to End GBV (Annex A). 

4.2.2 Where Manitoba transfers funding to Ultimate Recipients, Manitoba shall have full independence and responsibility in the selection of such Ultimate Recipients.

4.2.3 Programs, services and actions supported with Government of Canada funding must support the needs of the key population groups, including: women and girls; Indigenous women and girls; Black and racialized women; immigrant and refugee women; Two-Spirit, Lesbian, Gay, Bisexual, Transgender, Queer, Intersex, plus people (2SLGBTQI+); women with disabilities, and women living in Northern, rural, and remote communities.

4.2.4 A minimum of 25% of the overall federal funding under this Agreement must be spent by Manitoba on Priority area #1 -- increasing prevention efforts (as defined in Section 2.10).

4.2.5 Manitoba’s administration costs including costs related to central administrative functions that are drawn upon to support actions but are not specifically part of delivering an action outlined in Manitoba’s Implementation Plan (Schedule B) (e.g., office equipment, IT maintenance, public sector salaries) may account for a maximum of 10% of Manitoba’s 50% cost share.

4.2.6 Eligible Expenditures under the federal 50% cost share can include staff and management salaries and benefits directly related to delivery of actions in Manitoba’s Implementation Plan (Schedule B), but no federal funding can be used towards Manitoba’s administration costs described in Section 4.2.5.

4.2.7 Funding under this Agreement shall not be used to displace existing or publicly announced funding by Manitoba. 

4.3 Ineligible expenditures 

4.3.1 Actions outside Canada

Expenditures for actions that take place outside Canada or that deal with a related matter abroad are not eligible for funding under this Agreement.

4.3.2 Costs incurred before April 1, 2023, are not eligible for cost sharing.

4.3.3 Expenditures that do not support the implementation of the NAP to End GBV are not eligible for funding under this Agreement.

5. Allocation and conditions

5.1 Allocation to Manitoba

5.1.1 Subject to Parliamentary approval of appropriations, the maximum allocation by Canada to Manitoba under this Agreement is $22,292,000, matched by Manitoba, toward Eligible Expenditures in Manitoba’s Implementation Plan. Manitoba’s cost matching is further detailed in Schedule C. 

Canada’s annual maximum allocation of funding to Manitoba shall be:

1. $3,548,000 for the Fiscal Year beginning on April 1, 2023
2. $6,248,000 for the Fiscal Year beginning on April 1, 2024
3. $6,248,000 for the Fiscal Year beginning on April 1, 2025
4. $6,248,000 for the Fiscal Year beginning on April 1, 2026.

5.2 Transfer of funds between expenditure categories

5.2.1 Canada and Manitoba agree that, within each Fiscal Year of the period of this Agreement, Manitoba may move funding between the pillars and the foundation of the NAP to End GBV outlined in Manitoba’s Implementation Plan in Schedule B to ensure the maximum use of funding, in accordance with Section 4.2.4. Manitoba agrees to notify Canada in writing prior to any such change in funding allocation, including the rationale for the change. Should Canada have a reasonable objection to the change proposed by Manitoba, Canada shall communicate its objection within 30 Days following the issuance of Manitoba’s written notification to Canada.

6. Payment

6.1 Payment conditions

6.1.1 After the Effective Date, Canada shall pay Manitoba $3,548,000 for Fiscal Year 1 within twenty (20) Days for the first payment.

6.1.2 Manitoba will submit annual reports (Section 7.3) to receive subsequent advance payment for the following Fiscal Year in accordance with the “Payment and Reporting Schedule” below. The reports must be certified by Manitoba’s Designated Official. Payments for the subsequent Fiscal Years following Fiscal Year 1 are conditional upon receipt and acceptance by Canada of these completed reports and will be made to Manitoba within 20 Days of same. 

6.2 Carry forward

6.2.1 At the written request of Manitoba, and subject to the approval of Canada, funding amounts may be carried forward into the next Fiscal Year, under the following terms:

1. Manitoba may only use the amount carried forward to the next Fiscal Year for Eligible Expenditures incurred in that Fiscal Year;
2. amounts carried forward and paid must be spent by September 30th of the following Fiscal Year, and
3. any amounts unspent by the Manitoba on March 31, 2027, shall be repaid to Canada within six months after that date. 

6.3 Final payment

6.3.1 The final payment will be made to Manitoba upon Canada’s receipt of the 2026-2027 annual report, due by July 31, 2027, and confirmation that Manitoba has met its commitments under this Agreement. 

6.3.2 Details on other payment conditions can be found in Schedule C. 

7. Results, monitoring and reporting

7.1 Monitoring ultimate recipients

7.1.1 Manitoba will follow its own policies and procedures to assess and manage the manner in which Ultimate Recipients use federal funds provided under this Agreement to ensure transparency, impartiality, and fairness.

7.2 Performance indicators 

7.2.1 Canada collects and disseminates information on the outputs and impacts of the actions funded through its programs; this information is an important part of Canada’s accountability to Canadians. 

7.2.2 Manitoba will collect jurisdictional-specific data needed to report on the performance indicators in the NAP to End GBV Expected Results, attached as Annex D. 

7.3 Annual reporting

7.3.1 Manitoba shall provide Canada with an annual report for each Fiscal Year that this Agreement is active by July 31st of the following year. Manitoba agrees that the annual report will include:

1. data to report on results for the indicators in Manitoba’s Implementation Plan (Schedule B) and the Results Framework (Annex D);
2. a report on the actual actions completed in the Fiscal Year against the actions in Manitoba’s Implementation Plan;
3. a report of Manitoba’s actual Eligible Expenditures and a financial statement that is prepared in accordance with Manitoba’s financial authorities, regulations and/or policies against the amounts in Manitoba’s cost-sharing budget; 
4. a list of Ultimate Recipients that were supported during the reporting period, including the amount each organization received;
5. an updated Implementation Plan, if needed, for the remaining years of this Agreement;
6. an updated Cost-sharing Budget, if needed, for the following years of this Agreement;
7. any amount to be carried forward under Section 6.2. 

8. Audit & evaluation

8.1 Audit

8.1.1 Canada may choose to rely on the reporting requirements due by Manitoba under Sections 6 and 7 of this Agreement to conduct its own internal audit, for a period of up to five years after the end of this Agreement, without waiving the right to subsequently request an independent audit as provided herein.

8.1.2 If requested by Canada, the Parties agree that an independent auditor may be appointed through mutual agreement to review the records maintained by Manitoba, including the management of funds provided by Canada and the consistent application of generally accepted accounting principles in the maintenance of financial and accounting records.

1. The scope, coverage and timing of an audit is determined in collaboration between Canada and Manitoba. Both Parties shall make available to the auditors, in a timely manner, any accounts, records, documents or information related to actions that the auditors may reasonably require, upon request. The records, documents and information provided by the Parties are subject to their respective privacy legislation.
2. The results of the audit shall be made available by the auditor to Canada and Manitoba within thirty (30) Days of its completion.
3. If money is owing to either Party, the Party owing money will pay within ninety (90) Days of their receipt and agreement with the final audit report. 
4. The cost of providing the services of an independent auditor from the private sector shall be borne by Canada. 

8.2 Evaluation plan

8.2.1 Canada and Manitoba agree on the importance of assessing what has been accomplished in terms of the implementation progress to date on the NAP to End GBV outlined in this Agreement.

8.2.2 Canada’s programs are routinely subject to evaluation. The Parties agree to participate in the NAP to End GBV evaluation. 

8.2.3 The evaluation plan for the NAP to End GBV evaluation will be jointly agreed with all provinces and territories in advance of the evaluation and will: focus on gaps and strengths in governance, coordination, and actions; assess progress towards short-, medium- and long-term outcomes; and examine the effectiveness and efficiency in the design and delivery of the NAP to End GBV. 

9. Public communications & stakeholder engagement

9.1 Joint announcements

9.1.1. Canada and Manitoba agree to collaborate in the development of communication materials and activities related to this Agreement. The Parties shall designate communications contacts responsible for implementing coordinated joint communications to the public.

9.1.2 Canada and Manitoba agree to participate in an announcement of the bilateral Agreement, which may include stakeholders, once the Parties have signed this Agreement. This must precede the announcements under Section 9.1.3. 

9.1.3 Canada and Manitoba agree to collaborate on communication products related to announcements of actions under this Agreement with a value of over $100,000. This includes individual actions with a value of over $100,000, or a collection of actions announced at the same time for a value of over $100,000 total. Canada and Manitoba can collaborate on communications products related to actions funded under $100,000, if agreed upon by both Parties. 

9.1.4 All reasonable efforts will be made to ensure that public communications related to joint announcements are mutually agreed to by the Parties. Where applicable, products shall include a quote from both Manitoba’s Minister responsible for Gender Equity and Canada’s Minister for Women and Gender Equality. For announcements related to specific actions will be invited to take part. 

9.2 Individual communications

9.2.1 The Parties agree that its public communications (announcements and promotional material) related to the use of funding under this Agreement including by Ultimate Recipients, will acknowledge the financial contributions of the other Party. Wherever Manitoba’s visual identity is used (both online and physical), the Government of Canada’s visual identity must be used as well.

9.2.2 Notwithstanding Section 9.1, the Parties shall retain the right to fulfill their respective obligations to provide the people of Manitoba and Canada with information on this Agreement and on the use of funds through their own communication activities after the joint announcement with twenty (20) Days’ notice to the other Party prior to the public release.

9.3 Stakeholder engagement

9.3.1 Manitoba is encouraged to engage with stakeholders including Indigenous peoples, official language minority communities, GBV advocates, and other interested parties throughout implementation of the actions outlined in Schedule B. 

10. Official languages

Both Parties agree to take all necessary measures to communicate and provide related services in English and in French in accordance with the requirements of their respective official languages legislation, in carrying out their obligations pursuant to this Agreement.

11. Intellectual property

Canada does not assert ownership of any intellectual property developed as a result of the funding provided under this Agreement. Annual reports submitted to Canada under this Agreement do not constitute intellectual property and belong to Canada. 

12. Partnership

12.1 The Parties acknowledge that this Agreement does not constitute an association for the purpose of establishing a partnership or joint venture and does not create an agency relationship between Canada and Manitoba, and that in no way implies any agreement or undertaking to conclude any subsequent agreement. 

12.2 Neither Party shall represent itself as being a co-contractor, employee, or agent of the other Party in carrying out its obligations pursuant to this Agreement.

13. Amendments

13.1 Canada’s Minister for Women and Gender Equality may be required to obtain approval of the Governor in Council under Section 5 of the Department for Women and Gender Equality Act before amending this Agreement.

13.2 The sections of this Agreement may only be amended by the mutual written consent of the Parties. 

Annex A is for information only and cannot be amended through this Agreement.

Manitoba may adjust the actions in its Implementation Plan (Schedule B) within a Fiscal Year, as needed from time to time, without the mutual consent of the Parties, with the exception of changes under section 5.2.1. Manitoba will report all changes in its annual report for that Fiscal Year (Section 7.3).

Schedule C may only be amended by the mutual written consent of the Parties. 

Annex D can only be amended with the consensus of all jurisdictions who endorsed the NAP to End GBV through the Federal Provincial Territorial Forum of Ministers responsible for the Status of Women. 

14. Dispute resolution

14.1 Dispute resolution mechanism

In the event of a dispute arising under the terms and conditions of this Agreement, the Parties agree to make a good-faith attempt to settle the dispute. If a dispute cannot be resolved by the Designated Officials identified in Section 18.2, then either Party may refer the matter to such senior officials as the Parties may designate for resolution.

14.2 Termination for breach

If a Party breaches the terms of the Agreement and the Parties are not able to resolve the issue in dispute under the dispute resolution process pursuant to Section 14.1, the other Party may terminate this Agreement at any time by giving at least ninety (90) Days of written notice to the breaching Party. 

14.3 Termination for no cause

Canada or Manitoba may terminate this Agreement for any reason, by giving one hundred and eighty (180) Days notice to the Designated Official identified in this Agreement (Section 18.2).

14.4 No payments after date of termination

As of the date of termination, if this Agreement is terminated by a Party under Sections 14.2 or 14.3, Canada shall have no obligation to make any further payments to Manitoba. Subject to the terms and conditions of this Agreement, in the event that funding is terminated under the program, Canada shall reimburse Manitoba’s Eligible Expenditures incurred up to the end date of that notice period. The funding obligations of Canada shall cease at the end of the notice period. 

15. Reduction/termination of this agreement

15.1 The Parties acknowledge that any payment to be made under this Agreement is subject to the appropriation of funds by the Parliament of Canada and to the maintenance of the current and forecasted program budget levels. Manitoba acknowledges that funding under this Agreement may be reduced or terminated at Canada’s discretion in response to the government’s annual budget, a parliamentary or governmental spending decision, or a restructuring or reordering of the federal mandate and responsibilities that impact on the program under which this Agreement is made.

15.2 In the event of a reduction or termination of the funding of the program, Canada may, upon giving Manitoba written notice of ninety (90) Days, reduce the funding or terminate this Agreement. Subject to the terms and conditions of this Agreement, in the event that funding is terminated under the program, Canada shall reimburse Manitoba for any Eligible Expenditures incurred up to the end date of that notice period. The funding obligations of Canada shall cease at the end of the notice period. If Canada reduces its contribution under this Agreement, Canada and Manitoba agree to review the effects of such reduction on the overall implementation of the actions and on this Agreement.

16. Equality of treatment

16.1 During the term of this Agreement, any material changes to any of its Sections or Schedules, with the exception of Section 5.1, under any bilateral transfer payment agreement on the NAP to End GBV which have been negotiated, either under the original agreement or through amendments, addendums or otherwise, between Canada and any other province or territory of Canada, except the province of Québec, and which are more favourable than what was negotiated with Manitoba will, upon request, be extended to Manitoba. This amendment shall be retroactive to the date on which this Agreement or the amendments to such an agreement with any other province or territory, as the case may be, comes into force.

17. General provisions

17.1 No current or former federal public servant or federal public office holder who is not in compliance with the provisions of the Conflict of Interest Act, S.C. 2006, c.9, with the Values and Ethics Code for the Public Sector and the Policy on Conflict of Interest and Post-Employment, members of the House of Commons or Senator who is not in compliance with the Conflict of Interest Code for Members of the House of Commons or the Conflict of Interest Code for Senators, or anyone else bound by other values and ethics codes applicable to government or specific recipients, shall derive a direct benefit from this Agreement, unless the provision or receipt of the benefit is in compliance with the legislation or codes.

17.2 This Agreement shall constitute the entire Agreement between the Parties relating to its subject matter. 

17.3 This Agreement shall be interpreted in accordance with the laws in force in the Province of Manitoba.

17.4 In the spirit of transparency and open government, Canada and Manitoba shall make the entire Agreement, including any amendments, public by posting it on the Government of Canada’s and the Government of Manitoba’s website with the mention that the English version of this Agreement is the official version.

17.5 If, for any reason, a provision of this Agreement that does not constitute a fundamental condition thereof is deemed to be void or unenforceable, in whole or in part, that provision shall be considered severable and shall be struck from this Agreement; however, all other terms and conditions thereof shall continue to be valid and enforceable.

17.6 Information gathered by the Parties in carrying out this Agreement is subject to the applicable federal and provincial legislation regarding access to information and privacy. If the Parties share confidential information while carrying out this Agreement, the receiving Party will make best efforts to ensure the information is treated as confidential by that Party, during and after the period of this Agreement. 

17.7 Both Parties acknowledge that the other Party may publish any reports, audits, evaluations, or other documents produced in connection with this Agreement and any information contained in them that can be made public. Both Parties shall ensure that any public disclosure respects all requirements to protect personal information and third-party information.

18. Notice

18.1 Any notice, information or document required under this Agreement shall be deemed given if it is sent by email. Any notice sent by email shall be deemed to have been received one working day after it is sent. Either Canada or Manitoba may change the address and other information set out below, provided that a written change of address notice is issued to the other Party.

18.2 Notices or communications addressed to Canada shall be sent to the Designated Official at the following address:

Department for Women and Gender Equality 

Notices or communications addressed to Manitoba shall be sent to the Designated Official at the following address:

Gender Equity Manitoba Secretariat 

19. Counterparts

This Agreement may be executed in counterparts, each of which when so executed shall be deemed to be an original and all of which taken together shall constitute one and the same Agreement. An electronic PDF copy or facsimile with a Party’s signature shall be binding upon the signatory with the same force and effect as an original signature.

Signatures

In witness whereof, the Parties have signed this Agreement,

 

Signed on behalf of Canada 
At Toronto
this 29th day of June 2023.

The Honourable Marci Ien
Minister for Women and Gender Equality

 

Signed on behalf of Manitoba
At Winnipeg
this 21st day of June 2023

The Honourable Rochelle Squires
Minister responsible for Gender Equity

Annex A – National Action Plan to End Gender-Based Violence

Read the National Action Plan to End Gender-Based Violence.

Schedule B – Context* and year 1 actions (2023 – 2024)

*Please note that the Context has been provided by the Government of Manitoba and is not part of the Agreement.

Context

Gender-based violence in Manitoba

Manitoba has some of the highest rates of gender-based violence (GBV) among provinces in Canada, including the second highest rate of family violence^{Footnote 1}  and gender-related homicide of women and girls^{Footnote 2} , and the third highest rate of family violence against children and youth^{Footnote 1} . There are a variety of factors that contribute to the increased prevalence of GBV, including a lack of affordable housing, higher rates of poverty, higher numbers of individuals living in rural areas and barriers to education, employment, health care and cultural support.

While GBV affects individuals from all backgrounds, orientations, gender identities and ages, some populations experience GBV at higher rates. These include women who are Indigenous, young, financially disadvantaged, racialized, newcomers, living with disabilities, and individuals in the 2SLGBTQQIA+ community.

In 2021, just over 18 per cent of Manitoba’s population identified as Indigenous, the highest proportion of Indigenous Peoples provincially^{Footnote 3} . The legacy and continuation of colonialism, racism, sexism and exclusion creates and exacerbates personal, systemic and structural violence against Indigenous peoples. As a result, Indigenous women, girls and two-spirit Peoples are disproportionately affected by violence, including intimate partner violence and sexual violence^{Footnote 4} . While there is limited data to improve understanding of the intersecting identities of individuals and families that experience GBV in Manitoba, there is evidence to suggest that Indigenous women and girls make up a significant portion of the individuals accessing supports along the GBV service continuum^{Footnote 5} . They also represent the significant majority of missing and murdered women, girls and two-spirit Peoples in Canada^{Footnote 4} .

The onset of the COVID-19 pandemic and subsequent necessary stay-at-home measures designed to inhibit the spread of the virus resulted in an increase in risk factors for gender-based violence, including increased isolation at home with abusers and increased levels of stress; combined with a loss of protective factors, like access to community and support networks. This created the perfect storm in Manitoba, where the prevalence and severity of GBV experienced increased. During this time, both the number of crisis line calls and number of individuals accessing services across the GBV service continuum also increased, a trend that has continued despite the end of the protective measures implemented during the pandemic.

The 2017 Manitoban study, the Changing Face of Women’s Shelters, found that individuals within the study who had accessed GBV shelter supports had interactions with adjacent government and community services and supports, including, but not limited to, Manitoba Housing, Child and Family Services, Legal Aid, mental health and substance use programs, Probation Services and Victim Services. Research shows that GBV results in significant use of policing, social service interventions and health resources, and contributes significantly to the burden of disease and mortality^{Footnote 6} .  Ultimately, the impacts of GBV in Manitoba are broad and far-reaching.

Government of Manitoba’s commitment to end GBV

The Government of Manitoba recognizes the devastating impact GBV has at an individual, community and societal level, and is committed to taking action to address GBV in all its forms. The Minister responsible for Manitoba’s gender equity mandate serves as the Missing and Murdered Indigenous Women, Girls and Two-Spirit (MMIWG2S+) and Gender-Based Violence Committee of Cabinet Chair (MMIWG2SGBVCC). This committee applies a whole-of-government approach to the issue of GBV. Women and Gender Equity Manitoba (WAGE MB ) advances gender equity by addressing barriers and working to eliminate GBV. The Executive Director of the secretariat serves as Secretary to the Missing and Murdered Indigenous Women, Girls and Two-Spirit (MMIWG2S+) and Gender-Based Violence Committee of Cabinet.

In December 2020, the MMIWG2SGBVCC (then called the Gender-Based Violence Committee of Cabinet) released Manitoba’s Framework: Addressing Gender-Based Violence. The purpose of the Framework is to guide the integration of services and to take a government-wide approach to coordinate policies, legislation and initiatives on pervasive GBV issues. 

Addressing GBV requires a commitment to reconciliation. The Truth and Reconciliation Commission’s Calls to Action and the National Inquiry into Missing and Murdered Indigenous Women and Girls’ Calls for Justice guide the Framework’s actions, and Manitoba is committed to taking concrete steps to address the recommendations. The Department of Indigenous Reconciliation and Northern Relations (IRNR) tracks progress made on reconciliation in the annual Path to Reconciliation Annual Progress Report. Furthermore, in 2022, Manitoba announced funding to support Giganaawenimaanaanig, formerly known as the Manitoba MMIWG2S+ Partnership Implementation Plan, an Indigenous-led project that will work strategically to implement the Calls for Justice from Reclaiming Power and Place: The Final Report of the National Inquiry into Missing and Murdered Indigenous Women and Girls in a culturally-relevant way in Manitoba. 

Manitoba also recognizes the importance of providing trauma-informed, community-based wrap around supports throughout the GBV service continuum. Each year, Manitoba invests over $20M in the GBV service continuum through the Gender-Based Violence Program (GBVP), which provides programming and administrative support to 34 community-based programs. Programs are categorized into four main program sets along the GBV service continuum: Emergency Shelters, Intimate Partner Abuse Recovery/Transitional Housing Programs, Resource Centres and Specialized Programs. 

In April 2022 and March 2023, Manitoba announced improved funding models for GBVP-funded agencies resulting in an increase in annualized funding of $8.5M. The improved funding models focus on addressing systemic inequities and improving capacity for agencies across the province to allow for meaningful, and effective wrap-around supports for Manitobans who have experienced GBV. In 2023, Manitoba also announced annualized funding for three new, low-barrier GBV programs through the GBVP. 

Manitoba provides services for individuals who have experienced serious crimes, including GBV, who require assistance navigating the justice system. Victim Services, within the Department of Justice provides information, court preparation support, counselling and referrals for individuals who have experienced serious crimes. Victim Services coordinates with the Family Resolution Service, which employs Domestic Violence Specialists to provide individuals support and guidance as they navigate family law systems and processes.

Partners in ending GBV

WAGE MB works with partners at both the community and government level to provide trauma-informed, wrap-around supports along the GBV service continuum in Manitoba. WAGE MB works closely with various adjacent branches and departments within the provincial government, including the Department of Indigenous Reconciliation and Northern Relations (IRNR), Manitoba Housing, Employment and Income Assistance, and Children and Youth Services.

WAGE MB has worked diligently to develop strong relationships with agencies and leaders at the community level who provide front-line support for Manitobans experiencing GBV. Work to support and build capacity within the sector is done in partnership with community, particularly with agencies along the GBV service continuum. These organizations include Indigenous-led organizations, the RESOLVE community-based research network, the Manitoba Association of Women’s Shelters and the Family Violence Consortium of Manitoba. 

The expertise shared within these relationships not only guides Manitoba’s approach to addressing GBV broadly, but also played an important role in the development of Manitoba’s implementation plan for the National Action Plan to End Gender-Based Violence.

Our National Action Plan to End Gender-Based Violence Implementation Plan 

Ultimately, the Government of Manitoba recognizes that addressing GBV will not happen overnight; rather, through sustained, coordinated action in collaboration with community, stakeholders and partners, we can help to make our province safer for all Manitobans. The bilateral agreement between Canada and Manitoba for the National Action Plan to End Gender-Based Violence will support a monumental step forward for Manitoba in our work to address GBV. 

As the Manitoba provincial body focused on addressing GBV, WAGE MB was identified to lead the implementation of the agreement. WAGE MB focused on the provision of a diverse set of services that meet the needs of Manitobans with various intersecting identities, through a holistic, intersectional and culturally informed framework. Manitoba prioritized the voice of community throughout the implementation plan's development, focusing on initiatives that reinforce and build capacity within the established GBV service continuum in Manitoba. The priorities outlined within Manitoba’s implementation plan were developed through respectful engagements with community leaders, service providers and living experts to ensure their voices are heard and acted upon appropriately. 

Manitoba prioritized working alongside IRNR, as well as Indigenous organizations across the province to develop Manitoba's implementation plan. Participating in conversations where Indigenous organizations led the discussions helped to identify gaps in services and prioritize many of Manitoba’s implementation plan initiatives. Manitoba focused on Indigenous-led initiatives that include cultural and spiritual healing practices intended to support and strengthen individuals, families and communities that are healing from GBV.

It is important to identify the existing services that the Department of Justice currently employs to support Manitobans who have experienced GBV. These include Victim Services and the Family Resolution Services, as described above. WAGE MB has focused the first year of funding on four of the five Pillars and the Foundation of the National Action Plan to End Gender-Based Violence rather than Pillar Three (Responsive Justice System). Plans for subsequent years can include initiatives that fall under this pillar.

Manitoba has built in mechanisms within the implementation plan to continue to identify gaps within the GBV sector to ensure that Manitoba prioritizes the needs of individuals and families experiencing GBV throughout the duration of the agreement, and beyond. 

Finally, the activities within Manitoba’s implementation plan not only move Manitoba forward in meeting the recommendations outlined in Manitoba’s Framework: Addressing Gender-Based Violence, but will also work to build a strong foundation for Manitoba to continue working towards meeting the recommendations set out in the Calls to Action from the Truth and Reconciliation Commission and the Calls for Justice from Reclaiming Power and Place: The Final Report of the National Inquiry into Missing and Murdered Indigenous Women and Girls. 

Year 1 Actions Tables (2023-2024) 

Schedule C – Canada-Manitoba’s cost-sharing budget

1. Maximum amount of transfer payment

• Disbursements of the transfer payment to Manitoba will not exceed the amount(s) below, as per the payment breakdown and eligible expenses that will be incurred by Manitoba within the fiscal year in which they are allocated.

• Canada’s fiscal year starts on April 1 and ends on March 31 of the following calendar year. For each individual fiscal year, only the actions conducted by Manitoba between April 1 and March 31 of the following calendar year are eligible for the funding allocated for the applicable fiscal year.

2. Cost-sharing

• For the three Priorities outlined in Section 2.10 of the Agreement, a higher federal cost share for these areas could be provided, within an overall 50-50 cost share ratio for the full value of the Agreement. This would have to be met with a higher Manitoba investment in another non-priority area.
• A 50-50 cost share is encouraged on an annual basis. Should Manitoba wish to spread out the cost-sharing across the length of the Agreement in another method (within an overall 50-50 cost share ratio for the full value of the Agreement), this requires consensus from both Parties and Manitoba must inform Canada. 

3. Stacking limit

If, between the date of Manitoba receiving funding and the Agreement end date, Manitoba receives any financial assistance in support of the NAP to End GBV from a federal government department, agency or commission that is in addition to the financial assistance, Manitoba shall:

• inform Canada promptly in writing of the additional assistance received;
• where Manitoba receives any additional financial assistance, agree that Canada may, at its discretion, reduce the amount of its funding by the amount of any additional assistance to be received; and
• where Canada’s funding has already been paid, Canada may, at its discretion, require Manitoba to repay an amount equal to the amount of such assistance to Canada.

4. Overpayment

• Where, for any reason, Manitoba is not entitled to the transfer payment or Canada determines that the amount of the transfer payment disbursed exceeds the amount to which Manitoba is entitled, any such amount is recoverable by Canada.
• When Manitoba’s final report is completed and an overpayment is identified, Manitoba shall forward a reimbursement payment to Canada for the amount of the overpayment, payable to the Receiver General for Canada. The due date for the reimbursement shall be the date of the submission of the final report to Canada.
• When Canada or its representatives perform a financial analysis and an overpayment is identified, the overpayment shall be repaid to Canada no later than 90 days after the date of the notice sent by Canada.

5. Late claims

Canada will not be obligated to reimburse incurred expenditures or other costs after the end date of the agreement as indicated in Section 3.1 of the Agreement. 

Annex D – National Action Plan to End Gender-Based Violence expected results framework

Read the expected results framework.