Language selection

Government of Canada / Gouvernement du Canada

Search

2023-2024 Annual Report

A Hopeful Path Forward for Canada’s Muslim Communities

From: The Office of the Special Representative on Combatting Islamophobia

On this page

In memoriam

Our London FamilyFootnote 1

Alternate format

A Hopeful Path Forward for Canada’s Muslim Communities [PDF version - 10 MB]

Message from the Special Representative on Combatting Islamophobia

It has been a difficult year for Muslim communities in Canada.

We marked the trial and eventual conviction of the perpetrator in the horrific terrorist attack on Our London Family, while continuing to mourn alongside family and friends. This marked the first such terrorist conviction related to White nationalism in Canadian history.

We have also been watching heartbreaking scenes from the Middle East over the past several months — particularly the distressing number of civilian deaths and injuries. The war has had a direct impact on many in our country, including Canadian Muslims, and particularly those of Palestinian descent.

Beyond the worry for loved ones, many in Canada’s Muslim communities have also been facing ongoing hardship and anxiety about their ability to publicly exercise their civil liberties, including freedom of speech, assembly, and expression on the issue of Palestinian human rights.

Over the past several months, Canadian Muslims have shared their growing concerns about an increase in an anti-Muslim, anti-Palestinian, and anti-Arab backlash that have already led to loss of income, threats to current or future employment, harassment, violence, vandalism, and exclusion.

As the Special Representative on Combatting Islamophobia, my role is to support efforts to tackle and combat bias and hate towards Muslims in Canada. The role of the Office also includes providing expert advice, promoting education and awareness, and engaging relevant stakeholders in the fight to end anti-Muslim hate and discrimination, so that we may all live with dignity.

Over the past year, my team and I have been working to ensure that Canada has adequate tools to safeguard the rights and dignity of Canadian Muslims. We have launched resources and connected communities to the federal government. We are also working internally towards systemic change called for by Muslim communities.

Social change takes time. It must overcome decades, if not centuries, of outdated tropes, myths, and stereotypes about who Muslims are, and what they believe.

Our work is meant to advance a Canada that is inclusive, in which everyone truly belongs. It is work that complements the federal government’s efforts to combat all forms of hatred. We cannot let racism undermine our shared values and vision of a country in which no one is afraid to be who they are, where everyone can fully participate and contribute to their fullest potential.

As Canada’s Special Representative on Combatting Islamophobia, it is my greatest hope that, together, we can all help shape a country that is free of Islamophobia, antisemitism, anti-Black racism, anti-Asian racism, and any and all forms of systemic bias, discrimination, and hatred.

We will all be stronger and happier for it, and I look forward to continuing to build upon these efforts in the coming year.

In this report, I invite you to learn about the work of the Office in its first year, which has included providing guidance and advice to the federal government on polices impacting Muslims in Canada, meeting with communities and stakeholders, and raising awareness about Islamophobia and its impacts.

Amira Elghawaby
 Special Representative on Combatting Islamophobia

Amira Elghawaby
Amira Elghawaby was appointed as the Special Representative in February 2023

About the Office of the Special Representative on Combatting Islamophobia (OSRI)

The racism, stereotypes, prejudice, fear, or acts of hostility that can lead to Islamophobia are a direct threat to our nation’s social fabric and to the safety and well-being of Muslims living in Canada. Islamophobia can also include the unfair view and treatment of Muslims as a greater security threat on an institutional, systemic and societal level.

In several horrific acts of violence and terrorism that shocked and saddened our country, Canadian Muslims have even been killed by those harboring Islamophobic views; Canada has the heartbreaking distinction of having the highest number of deadly targeted attacks on Muslims of any G7 country.

Beyond fearing becoming victims of acts of terror, hate crimes, or hate incidents, Muslims in Canada can also experience discriminatory treatment, bias, and racism within their everyday lives at work, school, in their neighbourhoods, and at times from the very institutions that are meant to protect and support them.

Following community recommendations made at the 2021 National Summit on Islamophobia, the federal government established the Office of the Special Representative on Combatting Islamophobia to provide advice to the federal government on how to address the ongoing threat of anti-Muslim hate and racism in Canada.

In February 2023, the Prime Minister of Canada appointed award-winning journalist and human rights advocate Amira Elghawaby as Canada’s first-ever Special Representative on Combatting Islamophobia. Ms. Elghabwaby’s role is to support and enhance the federal government’s efforts in the fight against Islamophobia, while also promoting awareness of the diverse identities of Muslims in Canada.

The Office is located within the Department of Canadian Heritage, and the Special Representative reports to the Minister of Diversity, Inclusion and Persons with Disabilities.

“Canada must remain united behind its values of tolerance and inclusion, so that all Canadians feel safe and secure in their communities, streets and places of worship.”

The Honourable Kamal Khera, Minister of Diversity, Inclusion and Persons with Disabilities

Vision, mission and mandate

To help address these disturbing trends, the Office of the Special Representative on Combatting Islamophobia has developed a vision, mission and outlined three key outcomes for the Office that is based on a comprehensive mandate.

Vision

Canada should be a place where Muslims are able to fully participate in every aspect of society, while freely practicing their faith and expressing their diverse identities, without fear of discrimination or hate.

Mission

The Office of the Special Representative on Combatting Islamophobia will work with the federal government, and with communities and leaders across the country, to advance the safety, security, inclusion, well-being, prosperity, and cultural vitality of Muslims in Canada.

Mandate by themes: Table 1

The Special Representative has a broad mandate when it comes to combatting Islamophobia. This mandate is rooted in the three themes detailed in the table below.
Theme 1: Guidance and Advice Theme 2: Public Education and Awareness Theme 3: Stakeholder Engagement
The Special Representative provides expert guidance and advice to government, ministers, departments, and public institutions, in support of sound public measures that could affect Muslims in Canada — including the enhancement of efforts to track hate incidents, and contributions to training initiatives (e.g., for national security agencies, police forces, etc.) By encouraging and spearheading initiatives related to public education and awareness, the Special Representative is helping to address systemic issues, reframe narratives, and combat stereotypes, by highlighting the vibrancy and diversity of Muslim communities in Canada. The Special Representative proactively engages with diverse stakeholders across the country, including an intersectional range of Muslim communities, social organizations, the Special Envoy on Holocaust Remembrance and Combatting Anti-Semitism, policyholders, research organizations, and interfaith and intercommunity organizations.

Pillars of the Office

The work of the Office of the Special Representative on Combatting Islamophobia rests upon three pillars: Visibility and Awareness, Credibility and Accountability, and Impact and Change.

Visibility and awareness

Given the Office’s advocacy role, it is important that its work be visible to all Canadians. Raising awareness of the extent of Islamophobia in this country, as well as the toll it takes on both Muslims and Canadian society is a vital component of this work.

Credibility and accountability

The Special Representative offers expert advice and information to Government officials, institutional leaders, the media, and in public forums, to help support the unimpeded participation of Muslims across all aspects of society, while also acknowledging their myriad positive contributions to this country’s social fabric.

Impact and change

As Islamophobia continues to risk harming communities, one of the Office’s key pillars is to demonstrate the impact of combatting Islamophobia and leading change. By providing expert policy advice and advocacy, while also highlighting community-informed solutions, the Office impacts public policy and public discourse.

“So much energy has been taken up simply by making the argument that Islamophobia exists. We want to move towards actual solutions.”

Amira Elghawaby

Key outcomes

As part of the mandate, the Office advises the federal government on supporting the following three key outcomes:

Read the full mandate.

The first 100 days in Office

After taking office on February 20, 2023, the Special Representative on Combatting Islamophobia embarked on the first leg of a year-long listening tour.

Ms. Elghawaby conducted numerous community engagements with diverse groups in Alberta, Ontario and Quebec — the three provinces with the largest Muslim communities. She also participated in interfaith initiatives, policy workshops and community presentations across the country.

In her role as a federal advocate, Ms. Elghawaby appeared before the federal Senate Standing Committee on Human Rights for its study on Islamophobia. In addition, during the month of Ramadan in 2023, as well as throughout the year, she met with Members of Parliament (MPs) and Senators representing various political parties.

Additionally, within the first 100 days, Ms. Elghawaby conducted a strategic consultation with the Anti-Racism Secretariat and the Multiculturalism and Anti-Racism Branch — both then within the Department of Canadian Heritage — to determine key priorities for the Office during its first year. The priorities were informed by discussions with stakeholders and by the recommendations made during the 2021 National Summit on Islamophobia.

For a sample of community engagements and media, please see Year 1 below.

Year 1

Building the team

In its early days, staffing support for the Office of the Special Representative on Combatting Islamophobia was provided by the Multiculturalism and Anti-Racism Branch of the federal Department of Canadian Heritage.

Today, in addition to the Special Representative, the Office has four permanent staff: a Chief of Staff, two policy analysts, and one administrative assistant. The Department of Canadian Heritage provides some communications, administrative and corporate support.

Key highlights

Advice to the Government of Canada

Providing advice to the Government of Canada is among the key activities of the Office of the Special Representative. During the past year, the Office has initiated dialogue with federal departments such as Immigration, Refugees, and Citizenship Canada, the Canada Revenue Agency, Canadian Heritage, Justice, and others on issues as wide-ranging as the treatment of federal public servants, special immigration measures for Canadians with loved ones in Gaza, and the tax status of Muslim charities.

Many pieces of federal legislation have a direct impact on Canadian Muslims, as well as important implications in relation to the ongoing fight against Islamophobia. Over the past year, the Office has held multiple discussion with the Department of Justice and the Department of Canadian Heritage in relation to the proposed Online Harms Act (Bill C-63), which would make social media platforms responsible for the promulgation of online harm, including hate based on race and religion.

The Office has also held ongoing meetings with the Department of Public Safety on key issues involving social cohesion and security. This has included providing the Department with advice in relation to the existing national Security Infrastructure Program.

The Special Representative issued numerous statements throughout the year, which can be found on the official website. The website also includes an introductory video, information about the Office and a sign-up to receive regular newsletters.

Providing leadership on addressing anti-Muslim hate crimes

Hosting Canadian launch of the OSCE guide on anti-muslim hate crimes

In September 2023, the Office led the Canadian launch of the Understanding Anti-Muslim Hate Crimes — Addressing the Security Needs of Muslim Communities: A Practical Guide, published by the Organization for Security and Co-operation in Europe (OSCE). This important resource is designed to support governments in their efforts to prevent and combat hate crimes against Muslims. In addition to providing an analysis of security risks and the necessary actions required, the guide is aimed at improving the ability of police forces and other institutions to protect Muslim communities and individuals.

The event was a collaboration with the Canadian Commission for UNESCO, the Canadian Race Relations Foundation, and the federal Anti-Racism Secretariat.

Amira Elghawaby standing next to Minister Khera holding the guide.
Amira Elghawaby with the Hon. Kamal Khera, Minister of Diversity, Inclusion and Persons with Disabilities during the National launch of the OSCE’s Guide on “Addressing the Security Needs of Muslim Communities: A Practical Guide”.
Anti-islamophobia training module

In January 2024, the Special Representative delivered a video lecture to the Canada School for Public Servants, marking the National Day of Remembrance of the Quebec Mosque Attack and Action Against Islamophobia. This lecture, which addressed polarization and the risks Islamophobia poses to Canada, will become a permanent training module.

"We could have been at a funeral today."

Official from the Islamic Society of Markham, following an encounter with a violent intruder at the Markham mosque
Canadian Islamic History Month 2023
Displays at the exhibition at Edmonton City Hall.
"Muslim Women Tell It as It Is" photo exhibition at Edmonton City Hall.

To mark Canadian Islamic History Month 2023, the Office of the Special Representative published a downloadable poster series celebrating the contributions of Muslim women and girls. The selected images were part of a holistic anti-Islamophobia campaign called “Muslim Women Tell It As It Is”, launched in August 2023 in Edmonton by the group Sisters Dialogue. The photographs of local women and girls were taken by Ottawa-based photographer Faisa Omer.

The empowering campaign arose out of focus groups held with women and girls following a series of hate-motivated attacks on visibly Muslim women, many of whom were also Black.

Community engagement to support advice provided to the Government of Canada

Much of the work being done in Canada to combat Islamophobia is carried out at the grassroots level. Throughout the year, the Special Representative meets with advocacy groups, attends special events, participates in discussions, and more.

In the first year, the Office took part in conferences, events, workshops and training sessions aimed at raising awareness of Islamophobia. The Office also worked with Muslim groups within and beyond the federal public service, highlighted issues related to Islamophobia in traditional and social media, and engaged with law enforcement, provincial and municipal leaders, and university bodies.

a group of people sitting listening to Amira Elghawaby speaking.
Amira Elghawaby speaks during an event titled “The Threat of Polarization in Canada,” hosted by Canada’s all-party parliamentary caucus in Ottawa.

Key outcomes, mandate activities, and achievements

This year’s achievements in relation to key outcomes and mandate activities are summarized in the table below.
Key Outcome Mandate Activities Achievements
Ensuring that Muslims in Canada are able to live with dignity, free from discrimination.
  • Providing guidance and advice in support of the Government of Canada’s efforts to combat Islamophobia in Canada.
  • Supporting efforts to address systemic racism and Islamophobia through public education and awareness.
  • Promoting public awareness and understanding of Muslim communities in Canada by reframing narratives and combatting stereotypes, including highlighting diverse and intersectional Muslim identities through participation in commemorations and public events.
  • Proactively engaging with diverse stakeholders in Canada, including all of the varied Muslim communities around the country and other stakeholders, to advance community-informed solutions, policies, and actions.
  • Promoting Canada’s activities in combatting Islamophobia through official Government of Canada communication channels.
  • Ongoing engagement with various federal departments on policies that affect Muslims in Canada, including in relation to the impact of the war on Gaza on Canadian Palestinian Muslims and wider communities, the Security Infrastructure Program, supports for victims of hate crimes.
  • Participated in conferences, events, workshops, and training to raise awareness of Islamophobia.
  • Ongoing social media and media engagement to promote issues and highlight efforts to combat Islamophobia.
  • Broad engagement with national and local Canadian Muslim community groups and stakeholders to inform advice and guidance.
  • Launch of website to introduce and inform Canadians about the Office.
  • Issued public statements related to Islamophobia, civil liberties, and key commemorations and occasions — at times as joint statements with the federal Minister of Diversity, Inclusion and Persons with Disabilities.
Tackling hate, both online and offline.
  • Providing guidance and advice to federal ministers to inform and improve efforts to track and monitor incidences of anti-Muslim hatred and violence across Canada.
  • Successful Canadian launch of the OSCE Guide on Anti-Muslim Hate Crimes (September 2023).
  • Successful launch of a digital toolbox highlighting the contributions of Muslim women and girls throughout Islamic History Month, and to spotlight community-informed solutions to counter hate and empower vulnerable communities.
  • Ongoing engagement with the federal Department of Justice and Department of Canadian Heritage in relation to the proposed Online Harms Act.
  • Ongoing engagement with law enforcement agencies in several major cities, as well as with the Chair of the Canadian Association of Chiefs of Police, to discuss hate crimes and civil liberties.
Eliminating bias within Canada’s public service.
  • Offering guidance to responsible ministers to contribute to training, in support of national security agencies.
  • Providing advice to inform the development of policies, legislative proposals, programs, and regulations that could affect Muslim Canadians.
  • Established relationships with the Canada School for Public Servants and the Canadian Security Intelligence Service, to begin engagement on the development of training.
  • Delivered a video lecture to the Canada School for Public Servants, for the National Day of Remembrance of the Quebec Mosque Attack and Action Against Islamophobia, which will become a permanent training resource.
  • Ongoing engagement with the Privy Council Office and the President of the Treasury Board to highlight challenges Muslim public servants face, and to advance efforts to ensure the safe self-identification of religious minorities within the public service.

Year 1 public engagements

a large group of people sitting listening to Amira Elghawaby speaking.
Amira Elghawaby presents at the “6th Annual Metropolis Identities Summit in Calgary”.
Amira Elghawaby facing the camera while standing behind a photo of her on a stand.
Amira Elghawaby delivered the 2023 Currents Lecture for the Faculty of Public Affairs at Carleton University.

Public education and awareness

Amira Elghawaby at a podium addressing an audience.
Amira Elghawaby addresses the launch of the Salam Hamilton anti-Islamophobia campaign to mark the start of Canadian Islamic History Month.

Thank you Amira Elghawaby for this important roundtable discussion. As one of the students who participated, I found it incredibly valuable and empowering. It provided us with resources and tools to better advocate for human rights and combat Islamophobia and antisemitism on campus.

Khadijatu-Dimalya Ibrahim, McGill University Student

Stakeholder engagement to provide advice and guidance to the Federal Government

Amira Elghawaby sitting at a table addressing an audience.
Amira Elghawaby speaking at a community town hall in Calgary.

“Schools are places where all students should feel safe to be who they are, to express their identities and cultures and feel welcome and appreciated.”

Amira Elghawaby

“It’s important for Canadians to come together and collectively say that Canada is undermined by any form of hate, whether it is Islamophobia, antisemitism, anti-Black racism, anti-Asian racism — sadly, the list goes on.”

Amira Elghawaby

Note: This is not an exhaustive list of engagements.

In the news

A variety of media outlets call upon the Special Representative to provide insight into the state of Islamophobia in Canada, as well as describe the ongoing societal efforts towards combatting it.

The Special Representative made key media appearances over the past year including interviews on the rise of Islamophobia; concerns about the impacts of the war in Gaza on Canadian Muslims of Palestinian descent, and on civil liberties and social inclusion; reaction to developments in the trial of the convicted terrorist in the Our London Family attack; and more.

The Special Representative has also written numerous opinion-editorials to help raise awareness on the impacts of Islamophobia and to offer possible solutions and guidance for decision makers.

“Many Canadians are feeling both pain and fear. We must be able to lean into our shared values, respect one another, and freely exercise our rights and freedoms while standing against hate.”

Amira Elghawaby

2023–2024 by the numbers

Description Approximate Numbers Regions/Cities/ Coverage Area
Policy-Related Meetings 134 National
Community Engagement (meetings, roundtables, conferences, speaking engagements) 723 Ontario, Alberta, Quebec, New Brunswick, Nova Scotia, Manitoba
Media Engagement 30+ National and local media
Community Tours 4 London (Ontario), Montreal, Calgary and Edmonton, Halifax and Moncton
Announcements and Press Conferences 4 London, Toronto
Major Launch Event 1 National

Page details

Date modified: