Contributions to improve the safety and security of Indigenous women, children, families and 2SLGBTQQIA+ people
Terms and conditions: Family Violence Prevention Program
Table of contents
- Introduction
- Legal and policy authority
- Purpose, objectives and expected results
- Eligible recipients
- Eligible activities
- Type and nature of eligible expenditures
- Stacking limits
- Method for determining the amount of funding
- Maximum amount payable
- Basis for payment
- Application requirements and assessment criteria
- Due diligence and reporting
- Official languages
- Intellectual property
- Redistribution of contributions
- Other terms and conditions
1. Introduction
The Government of Canada takes the issue of violence against Indigenous women very seriously and will continue to work in partnership with Indigenous organizations, provincial and territorial governments, and external partners to develop effective solutions.
Indigenous Services Canada (the department) administers the Family Violence Prevention Program (FVPP) that contributes to the safety and well-being of Indigenous Peoples, families and communities.
The FVPP aims to fund protection and prevention services for Indigenous women, children and families across Canada. This includes:
- First Nations
- Inuit
- Métis
- urban
- two-spirit, lesbian, gay, bisexual, transgender, queer, questioning, intersex and asexual + (2SLGBTQQIA+) people.
Funding recipients provide Indigenous Peoples with individual and family services that are developed and implemented through an Indigenous lens, targeting the specific violence prevention needs of the communities. The intention of the program is to assist Indigenous individuals and communities to:
- protect individuals and families at risk of violence
- provide violence prevention supports that allow individuals and families to better care for themselves and their children
- become more self-sufficient
Scope
The FVPP has the following components:
Operations and capacity building for shelters and transitional (second-stage) housing
- Funding for the daily operations of emergency shelters that provide services for Indigenous women, children and families across Canada, including First Nations (on and off reserve), Inuit, Métis, urban and 2SLGBTQQIA+ people
- Funding for the daily operations of transitional (second-stage) housing that provide services for Indigenous women, children and families across Canada, including First Nations (on and off reserve), Inuit, Métis, urban and 2SLGBTQQIA+ people
- Funding to reimburse Alberta and the Yukon for First Nations women, children, families and 2SLGBTQQIA+ people accessing shelters off reserve
- Funding to provide support to shelters, transitional (second-stage) homes and their staff through training forums, gatherings and development and distribution of resources and research
Prevention and awareness
- Funding for culturally-appropriate community-driven prevention projects to raise awareness and focus on First Nations, Inuit, Métis, urban and 2SLGBTQQIA+ people facing gender-based violence such as public awareness campaigns, conferences, workshops, stress and anger management seminars and support groups
- Funding for engagement and community prevention projects to raise awareness and focus on Métis women, girls, as well as and 2SLGBTQQIA+ people
2. Legal and policy authority
The FVPP is delivered under the authority of the Department of Indigenous Services Act, S.C. 2019, c. 29, s. 6, which provides the Minister of Indigenous Services with powers, duties and functions that extend to and include all matters over which Parliament has jurisdiction, not by law assigned to any other department, board or agency of the Government of Canada, relating to the provision of services to Indigenous individuals who, and Indigenous governing bodies that, are eligible to receive those services under an act of Parliament or a program of the Government of Canada for which the minister is responsible.
The minister is to ensure that services with respect to the following matters are provided to Indigenous individuals who, and Indigenous governing bodies that, are eligible to receive those services under an act of Parliament or a program of the Government of Canada for which the Minister is responsible, including, in the case of Indigenous individuals, services provided by Indigenous governing bodies, if applicable:
- child and family services
- education
- health
- social development
- economic development
- housing
- infrastructure
- emergency management
- governance
- any other matter designated by order of the Governor in Council
Authority is also conveyed through the following:
- Administrative Reform Agreement with the Province of Alberta (1991), also known as the "Alberta Reform Agreement"
- Letter of Understanding with the Yukon Government (1993)
3. Purpose, objectives and expected results
The purpose of the program is to:
- fund and support core facility operations and services for Indigenous women, children and families facing gender-based violence across Canada, including First Nations, Inuit, Métis, urban and 2SLGBTQQIA+ people
- deliver effective supports and culturally-appropriate violence prevention activities
Immediate: 1 to 2 years
Indigenous families, children and 2SLGBTQQIA+ people facing gender based violence have access to a continuum of supports, which includes:
- increased shelter space for Indigenous Peoples across Canada
- increased transitional (second-stage) housing for Indigenous Peoples across Canada
- culturally-appropriate supports and violence prevention activities are defined and led by Indigenous organizations and communities, including First Nations, Inuit, Métis, urban and 2SLGBTQQIA+ people
- increased engagement of men and boys in ending violence towards women and children
Intermediate: 3 to 5 years
Indigenous women, children, families and 2SLGBTQQIA+ people receive enhanced services and participate in violence prevention activities, which includes:
- services and supports from Indigenous-led shelters and transitional (second-stage) housing facilities
- community-based and culturally-appropriate supports and violence prevention activities for First Nations, Inuit, Métis, urban and 2SLGBTQQIA+ people
- violence prevention activities for Indigenous men and boys
Ultimate: 5 years and beyond
The safety and security of Indigenous women, children, families and 2SLGBTQQIA+ people are improved.
4. Eligible recipients
| Eligible recipients | Shelter operations | Transitional (second-stage) housing operations | Capacity building for shelter and transitional (second-stage) housing | Prevention and awareness |
|---|---|---|---|---|
| First Nations, governments and communities in Canada (including bands, district, tribal councils and associations) | Yes | Yes | Yes | Yes |
| Inuit representative organizations, Inuit governments and Inuit communities | Yes | Yes | Yes | Yes |
| Métis representative organizations and Métis settlements | Yes | Yes | Yes | Yes |
| Indigenous organizations | Yes | Yes | Yes | Yes |
| National Indigenous Organizations | No | No | Yes | Yes |
| Provincial and territorial governments* | Yes | Yes | No | No |
| Municipalities* | Yes | Yes | No | Yes |
| Non-governmental and voluntary associations and organizations, including non-profit corporations* | Yes | Yes | No | Yes |
| Educational or research institutions and associations* | No | No | No | Yes |
| *All non-Indigenous organizations, including provincial, territorial and municipal governments, require demonstrated support from Indigenous organizations or Indigenous community groups to be eligible for funding. | ||||
On an exceptional basis, individuals deemed capable of conducting family violence prevention activities can be considered for funding, but they must be associated with an Indigenous community or organization. This can be demonstrated by providing letters of support.
A recipient must have the legal capacity to enter into a funding agreement (such as being incorporated).
5. Eligible activities
Shelter operations
Core operating funding to emergency shelters serving Indigenous communities across Canada, including First Nations, Inuit, Métis, urban and 2SLGBTQQIA+ people.
Shelters may be managed by a non-Indigenous entity with community support but must primarily serve Indigenous women, children and families.
In some provinces and territories, where service delivery arrangements currently exist, reimbursement of the actual costs of providing services to First Nations women, children and families ordinarily resident on reserve at a provincial or territorial shelter off reserve at their respective daily rates and policies.
Transitional (second-stage) housing
Core operating funding to transitional (second-stage) housing that serves Indigenous communities across Canada, including First Nations, Inuit, Métis, urban and 2SLGBTQQIA+ people. These facilities may be managed by a non-Indigenous entity with community support but must primarily serve Indigenous women, children and families.
Capacity building for shelters and transitional (second-stage) housing
Core funding for Indigenous organizations to provide support to shelters and their staff through training forums, gatherings, distribution of resources including research and policy development.
Prevention and awareness
Family violence prevention activities targeting Indigenous populations such as, but not limited to, public outreach and awareness, conferences, seminars, workshops, support groups and community needs assessments.
6. Type and nature of eligible expenditures
These expenses should directly support the activities stated in Section 5.
| Expenditures | Shelter operations | Transitional (second-stage) housing operations | Capacity building for shelters and transitional (second-stage) housing | Prevention and awareness |
|---|---|---|---|---|
| Salaries and employee benefits | Eligible | Eligible | Eligible | Eligible |
| Professional fees (contracts) | Eligible | Eligible | Eligible | Eligible |
| Honoraria for Elders | Eligible | Eligible | Eligible | Eligible |
| Domestic travel and transportation | Eligible | Eligible | Eligible | Eligible |
| Costs related to the purchase, ownership, and maintenance of vehicles, including insurance as applicable, to support operation of the facility | Eligible | Eligible | Non-eligible | Non-eligible |
| Meetings | Eligible | Eligible | Eligible | Eligible |
| Hospitality | Eligible | Eligible | Eligible | Eligible |
| Training and development | Eligible | Eligible | Eligible | Eligible |
| Equipment | Eligible | Eligible | Eligible | Eligible |
| Rent and utilities | Eligible | Eligible | Eligible | Eligible |
| Translation and communications | Eligible | Eligible | Eligible | Eligible |
| Materials and supplies | Eligible | Eligible | Eligible | Eligible |
| Volunteer participation expenses | Eligible | Eligible | Eligible | Eligible |
| Audits and evaluation | Eligible | Eligible | Eligible | Eligible |
| Legal and banking fees | Eligible | Eligible | Eligible | Eligible |
| Insurance | Eligible | Eligible | Eligible | Eligible |
| Overhead administration costs | Eligible | Eligible | Eligible* | Eligible* |
| Direct client costs | Eligible | Eligible | Non-eligible | Non-eligible |
| Operations, minor maintenance, upgrading and repairs to facilities not exceeding $50,000 | Eligible | Eligible | Non-eligible | Non-eligible |
| Crisis line | Eligible | Eligible | Non-eligible | Non-eligible |
| Off-hour emergency services | Eligible | Eligible | Non-eligible | Non-eligible |
| Provincial and territorial bills** | Eligible | Non-eligible | Non-eligible | Non-eligible |
| *Not exceeding 15% of the contribution. **Where service delivery arrangements currently exist, the department will reimburse provincial and territorial bills for the actual costs of providing services to individuals and families ordinarily resident on reserve, according to provincial or territorial daily rates and policies. |
||||
Eligible overhead administration costs include:
- payroll administration fees
- office supplies and equipment
- telephone and IT support services
- human resource services and recruitment
A reasonable cost is defined as a price that is consistent with what a person would pay in the same or similar circumstances for the same or similar item.
Expenditures related to hospitality have to be reasonable for the activities undertaken. Refer to the Treasury Board guidelines on hospitality for examples of rates and eligible expenditures.
Expenditures related to travel have to be reasonable for the activities undertaken. Refer to the Treasury Board travel directive for examples of rates and eligible expenditures.
Other expenditures may be considered eligible based on direct link to the activity and are subject to FVPP review and approval.
Ineligible expenditures include
- purchase of capital assets with a market value in excess of $5,000, unless pre-authorized in writing, excluding vehicles
- international travel, unless pre-authorized in writing
- deficit recovery
- for-profit initiatives and investments
- capital costs, except minor maintenance
The FVPP does not fund the construction, renovation or major repair of facilities. Funding recipients may apply to the Canada Mortgage and Housing Corporation (CMHC), which offers application-based funding for major renovation projects through the National Housing Co-Investment Fund – revitalization, or the Shelter Enhancement Program for First Nations communities on reserve.
7. Stacking limits
The stacking limit is the maximum level of funding to a recipient from all sources (including federal, provincial, territorial and municipal) for any one activity, initiative or project. The limit is 100% of eligible costs.
8. Method for determining the amount of funding
Operational funding for shelters and transitional (second-stage) housing
Contribution amounts for operational funding are based on a national funding formula. The formula calculates a core operating budget for each shelter based on the province or territory of operation, size of area served and geographical location using four expenditure factors: staff salaries and benefits, operational and administrative costs, and where applicable, funds to cover the costs associated with remoteness and emergency needs.
Contribution amounts for transitional (second-stage) housing will align with the approach used to fund shelter operations.
Capacity building for shelters and transitional (second-stage) housing and violence prevention
The amount of funding for shelter and transitional (second-stage) housing capacity and violence prevention projects is determined by:
- completing an assessment of the proposed project objectives, activities and budget against these terms and conditions
- then negotiating with the recipient the exact required amount of funding in order to achieve the proposed project objective
The department will also ensure that the funding amount is appropriate.
Provincial and territorial service delivery arrangements
Where service delivery arrangements currently exist, the department will reimburse provincial and territorial bills for the actual costs of providing services to First Nations women, children and families at provincial or territorial shelters off reserve, according to provincial or territorial daily rates and policies.
9. Maximum amount payable
| Eligible recipients | Maximum amount | |||
|---|---|---|---|---|
| Shelter operations | Transitional (second-stage) housing operations | Capacity building for shelters and transitional (second-stage) housing | Prevention and awareness | |
| First Nations governments and communities in Canada (including bands, district, tribal councils and associations) | $2,500,000 | $2,500,000 | $3,000,000 | $3,000,000 |
| Inuit representative organizations, Inuit governments and Inuit communities | $2,500,000 | $2,500,000 | $3,000,000 | $3,000,000 |
| Métis representative organizations and Métis settlements | $2,500,000 | $2,500,000 | $3,000,000 | $3,000,000 |
| Indigenous organizations | $2,500,000 | $2,500,000 | $3,000,000 | $3,000,000 |
| National Indigenous organizations | Non-applicable | Non-applicable | $3,000,000 | $3,000,000 |
| Provincial and territorial governments | Negotiated amount* | Negotiated amount* | Non-applicable | Non applicable |
| Municipalities | $2,500,000 | $2,500,000 | Non-applicable | $3,000,000 |
| Non-governmental and voluntary associations and organizations, including non-profit corporations | $2,500,000 | $2,500,000 | Non-applicable | $3,000,000 |
| Educational or research institutions and associations | Non-applicable | Non-applicable | Non-applicable | $3,000,000 |
| *Subject to agreements between the department and provinces or territories. | ||||
10. Basis for payment
Payments will be made in accordance with the type of funding arrangement and will be guided by departmental policies as reflected in the contribution agreement.
Where it is advantageous to the success of the activities, the department will offer fixed or flexible funding approaches for contributions to Indigenous recipients, in accordance with Appendix K of the Directive on Transfer Payments.
Basic payment principles applicable to FVPP specify that:
- funds be used for eligible activities and cost categories as specified in the contribution agreement
- costs charged to the program do not exceed any maximums specified in the agreement
- funds be used within the period and to address the needs for which they were provided
- financial reporting requirements specified in the contribution agreement be met
Advance payments will be permitted, based on a forecast of cash flow provided by the recipient.
Progress payments will be subject to periodic reports of activities and expenditures, as specified within the funding agreement, which will be reviewed and validated by the department.
Officials will ensure that all applicable requirements are met prior to processing a payment.
Holdback requirements, if applicable, will be determined based on risk assessment and may be up to 20% of the total contribution.
Final payment will be contingent on the receipt by the department of the final activity, performance and financial reports, as specified in the agreement.
Funding under the FVPP is targeted and cannot be used for any other purposes.
11. Application requirements and assessment criteria
This section reflects the requirements and criteria by which the department will support program delivery.
In order to be considered for receipt of contribution funding from the department, an eligible recipient must complete and submit an application form that identifies the following:
- description of the project and how it supports the objectives of the FVPP
- outlines the activities to be performed in pursuit of the objectives
- identifies the expected results within a specified time frame and the intended benefit for Indigenous Peoples
- outlines the role played, or to be played, by Indigenous Peoples and community in designing and delivering the project
- provides a detailed budget and if applicable, a cash flow statement
- discloses all sources of funds
Additional documentation may be requested by the department to assess new funding recipients for the purpose of determining eligibility and suitability in being able to deliver on the objectives of the project.
Funding applications may be assessed against the following criteria:
- completeness of the application
- objectives of the project and how the project will contribute to the objectives of these terms and conditions
- eligibility as per these terms and conditions
- who will benefit from the project
- assets and needs of the target beneficiaries and the community in which the project is to be delivered
- demonstrated support by Indigenous Peoples, community and other partners in designing and delivering the project
- feasibility of the project, as well as outcomes achieved compared to the funding requested
- applicant organization's performance record in administering government funding agreements and achieving project objectives
- risk of project not being successful as proposed and risk of funds not being utilized as outlined in the funding agreement and needing to be recovered from the recipient
- applicant's demonstrated ability to leverage other funding
12. Due diligence and reporting
The 2008 Treasury Board Policy on Transfer Payments requires effective monitoring and oversight for program management as follows:
Performance measurement strategy
To support a reduction in the reporting burden, performance measurement data will be collected using various methods and sources. Recipient performance reporting requirements will be set out in departmental recipient reporting documents. Frequency of reporting will be based on recipient risk.
Financial accountability
Financial reporting requirements will be set out in the funding agreements and the frequency of reporting will be based on the recipient risk. At a minimum, contribution recipients are required to submit annual financial reports or financial audits that account for the use of funding in accordance with the terms of the funding agreement.
13. Official languages
The department will take into account the relevant official language obligations and comply with all applicable official language requirements stipulated in the Official Languages Act and the related regulations, as well as federal government policies in this regard.
Transfer payments to recipients
Where it has been determined that:
- the target clientele eligible to participate in a project to be carried by the recipient is composed of members of both official language communities
- the anticipated demand for project assistance by the target clientele in both official languages justifies the use of both official languages, the department requires the recipients to:
- make any announcements to the public concerning the project in both official languages
- actively offer project-related services to members of the public in both official languages
- make available in both official languages any documents or other information for the general public relating to the project
- encourage members of both official language communities to participate in the project
- provide its services, when appropriate, in such a manner as to accommodate the specific needs of both official language communities
If the department determines that the activities of a specific recipient may have an impact on official-language minority communities or be susceptible of promoting linguistic duality, the funding agreement will specify the recipient's linguistic commitments and ensure that additional expenses incurred as a result of these commitments are considered eligible.
Commitments relating to the development of minority communities will be determined based on the needs of the community, determined after consultations with the community, if appropriate.
14. Intellectual property
Where a contribution is provided for the development of material in which copyright exists, intellectual property ownership will reside with the recipient. However, in the event the department wishes to use the intellectual property produced by a recipient, the following clause will be included in the funding agreement:
"The recipient gives the minister a royalty-free, permanent and non-exclusive license to produce, reproduce, translate, modify or publish, in any way, the original work or an adaptation, in any language, for use within the federal public service and for non-commercial distribution, including the evaluation research design, data collection instruments and all interim and final evaluation reports".
15. Redistribution of contributions
As per the Directive on Transfer Payments, a recipient is defined as an entity that either has been authorized to receive a transfer payment or that has received that transfer payment. In this context, the department may provide contribution funding to recipients who in turn further distribute payments to one or more ultimate recipients to conduct approved activities.
The recipient must remain liable to the department for the performance of its obligations under the funding agreement. Neither the objectives of the programs and services nor the expectations of transparent, fair and equitable services will be compromised by any delegation or redistribution of contribution funding.
These transfer payment funds can be further distributed by recipients; however, any entity receiving funds from a recipient must also qualify as an eligible recipient under these terms and conditions.
A formal agreement is required to specify accountability requirements between the recipient and any ultimate recipient and will provide, in accordance with the Policy on Transfer Payments and its associated directive, the necessary requirements related to further distribution of funding.
Recipients will have independence in the choice of those persons or entities to whom funds will be further distributed and will not be acting as an agent of the government in making distributions.
16. Other terms and conditions
These terms conditions come into effect on June 23, 2021.