Chapter 15: Safe sport policies and codes of conduct

Part II — Safe sport in Canada

On this page

• National level policies and codes of conduct
• Provincial and territorial level policies and codes of conduct
• Safe sport policies and codes of conduct in Community Sport Organizations, university and college
• Participant perspectives on safe sport policies and codes of conduct

In the previous chapters, we defined safe sport environments and examined preventative strategies to address and reduce maltreatment in sport. In this chapter, we focus on the safe sport policies adopted by various sport organizations across the country. These policies are generally designed to protect athletes, coaches, officials and the public from various forms of maltreatment like abuse, harassment, and discrimination.

We begin this chapter by discussing the Universal Code of Conduct to Prevent and Address Maltreatment in Sport (also called the “UCCMS”). This Universal Code of Conduct is the main safe sport policy at the national level. We also review government safe sport policies from provinces and territories and briefly touch on those adopted by National Sport Organization, Provincial and Territorial Sport Organizations and Community Sport Organizations. For all these topics, we incorporate feedback received during our engagement process.

This chapter lays the foundation for Chapter 16, which addresses the various complaint mechanisms created to administer these policies. Because our preliminary findings and recommendations on safe sport policies and codes of conduct are closely intertwined with those concerning complaint mechanisms, they are presented together, in a single set of preliminary findings and recommendations, at the end of Chapter 16.

National level policies and codes of conduct

The national safe sport policy is the Universal Code of Conduct to Prevent and Address Maltreatment in Sport. Published by the Canadian Centre for Ethics in Sport in 2019, the Universal Code of Conduct is a policy aimed at creating a safe, respectful and inclusive sport environment.

As we will discuss below, the Universal Code of Conduct sets standard definitions of various forms of maltreatment and prohibits maltreatment in sport. It applies directly to all federally funded National Sport Organization and Multisport Service Organizations, who are required to adopt it as a condition to receive federal funding. In addition to the Universal Code of Conduct, some of these organizations have implemented their own codes of conduct or safe sport policies to address issues related to safe sport.

Efforts that led to the Universal Code of Conduct to Prevent and Address Maltreatment in Sport

In February 2019, the ministers responsible for sport, physical activity and recreation from the federal, provincial and territorial governments adopted the Red Deer Declaration – For the Prevention of Harassment, Abuse and Discrimination in Sport. This declaration commits both levels of government to eliminating abuse, discrimination and harassment in sport.^{Footnote 1}

The Coaching Association of Canada then hosted a series of provincial and territorial safe sport summits, which led to a National Safe Sport Summit in May 2019. During this national summit, there was a consensus to develop a single and harmonized code governing safe sport in Canada, and an agreement on which elements it should include.^{Footnote 2} It was also agreed that an independent body would be chosen to implement this harmonized and universal code.^{Footnote 3}

In response, Sport Canada asked the Canadian Centre for Ethics in Sport to draft the key components of a universal code. This included guiding principles, definitions of misconduct, prohibited behaviours including all forms of abuse (sexual, physical, and psychological), and related sanctions.^{Footnote 4} The Canadian Centre for Ethics and Sport then partnered with the Sport Information Resource Centre to lead an extensive engagement process.^{Footnote 5}

The first version of the Universal Code of Conduct to Prevent and Address Maltreatment in Sport was published by the Canadian Centre for Ethics in Sport in 2019 (version 5.1).^{Footnote 6} A revised version was published by the Sport Dispute Resolution Centre of Canada on May 31, 2022, and came into effect on November 30, 2022 (version 6.0).^{Footnote 7} The current version was published by the Canadian Centre for Ethics in Sport on January 17, 2025, and came into effect on April 1, 2025 (version 7.0).^{Footnote 8} Our understanding is that there are no substantive changes between versions 6.0 and 7.0 of the Universal Code of Conduct and that version 7.0 merely reflects the transfer of its administration from the Office of the Sport Integrity Commissioner to the Canadian Centre for Ethics in Sport, as will be further discussed in Chapter 16.

Content and purpose of the Universal Code of Conduct to Prevent and Address Maltreatment in Sport

The Universal Code of Conduct is the “core document that sets harmonized rules to be adopted by sport organizations that receive funding from the Government of Canada to advance a respectful sport culture that delivers quality, inclusive, accessible, welcoming and safe sport experiences.”^{Footnote 9}

The Universal Code of Conduct defines and prohibits various forms of maltreatment, referred to as prohibited behaviours. It also outlines additional behaviours that, although not considered maltreatment, are nonetheless prohibited. The Universal Code of Conduct then provides a framework for applying appropriate sanctions once such prohibited behaviours are identified.^{Footnote 10}

The various forms of maltreatment under the Universal Code of Conduct to Prevent and Address Maltreatment in Sport are:

• psychological maltreatment^{Footnote 11}
• physical maltreatment^{Footnote 12}
• neglect^{Footnote 13}
• sexual maltreatment^{Footnote 14}
• grooming^{Footnote 15}
• boundary Transgressions^{Footnote 16}
• discrimination^{Footnote 17}

The list of other prohibited behaviours is:

• subjecting a participant to the risk of maltreatment^{Footnote 18}
• aiding and abetting the commission of maltreatment or other prohibited behaviour^{Footnote 19}
• failure to report possible maltreatment or other prohibited behaviour^{Footnote 20}
• intentionally reporting a false allegation^{Footnote 21}
• interference with or manipulation of an investigation or disciplinary review^{Footnote 22}
• retaliation^{Footnote 23}

The possible sanctions are:

• verbal or written apology^{Footnote 24}
• verbal or written warning^{Footnote 25}
• education^{Footnote 26}
• probation^{Footnote 27}
• suspension^{Footnote 28}
• eligibility Restrictions^{Footnote 29}
• permanent Ineligibility^{Footnote 30}
• other discretionary sanctions (for example, loss of the right to attend or spectate sport events, a fine or a monetary payment to compensate for direct losses, or no contact directives)^{Footnote 31}

The Universal Code of Conduct defines rules and violations for “Participants.” As such, only individuals are subject to the Code.

The Universal Code of Conduct requires the creation of a searchable database or registry of individuals whose eligibility to participate in sport has been restricted.^{Footnote 32} This registry is currently maintained by the Canadian Centre for Ethics in Sport^{Footnote 33}. The Canadian Safe Sport Program Public Registry is further addressed in Chapter 17.

The Universal Code of Conduct provides that the Canadian Centre for Ethics in Sport is responsible for its administration.^{Footnote 34} However, it does not contain procedural provisions, such as how to file or investigate complaints. These issues are addressed by the Canadian Safe Sport Program Rules, which will be discussed in Chapter 16.

Finally, the Universal Code of Conduct does not apply automatically.^{Footnote 35} Sport organizations need to adopt the Code for it to apply to their participants.

Applicability of the Universal Code of Conduct to national level sport organizations

As mentioned in Chapter 5, all National Sport Organizations, National Multisport Service Organizations and Canadian Sport Centres and Institutes must adopt the Canadian Safe Sport Program to receive federal funding from Sport Canada’s Sport Support Program.^{Footnote 36}

As will be further discussed in Chapter 16, the Canadian Safe Sport Program allows the Canadian Centre for Ethics in Sport to independently administer and enforce the Universal Code of Conduct. The Centre does this by receiving and responding to reports of prohibited behaviours, and by developing and carrying out education, prevention and policy activities.^{Footnote 37}

The Canadian Safe Sport Program requires participating sport organizations to sign an adoption contract. This contract requires them to formally accept and include the Canadian Safe Sport Program and the Universal Code of Conduct (including any future amendments) into their internal policies and procedures.^{Footnote 38}

As also outlined in Chapter 16, the Canadian Safe Sport Program only applies to a limited group of individuals within a sport organization,^{Footnote 39} and only in specific situations.^{Footnote 40}

Applicability of the Universal Code of Conduct to sport organizations below the national level

The Universal Code of Conduct to Prevent and Address Maltreatment in Sport can apply indirectly to sport organizations that are not national. This is due to the hierarchical nature of sport in Canada, where a “flow-through” system allow rules from the national level to extend to every level of sport, down to the grassroots.^{Footnote 41}

For example, many National Sport Organizations require their provincial and territorial members to adopt and follow national level sport policies. This could include endorsing the Universal Code of Conduct. In turn, Provincial and Territorial Sport Organizations do the same with their members, which are generally local clubs and associations.^{Footnote 42}

Organizations outside of this hierarchy and not federally funded, like universities (further discussed below), can choose to voluntarily adopt the Universal Code of Conduct and then require their participants to follow it.

We further note that some organizations only partially adopt the Universal Code of Conduct. For example, this is what Trent University’s Department of Athletics has done. Their Student-Athlete Handbook states that the Department of Athletics adopted sections 1 to 5 of the Universal Code of Conduct,^{Footnote 43} which means that it has not adopted the Code’s rules about sanctions. The handbook also states that student-athletes and coaches are expected to follow the values, principles and guidelines of the Universal Code of Conduct.^{Footnote 44}

Other policies and codes at the national level of sport

National Sport Organizations and national Multisport Service Organizations generally have their own policies and codes of conduct and ethics. These documents outline the expected behaviours for individuals involved with the organization and when disciplinary action might occur.^{Footnote 45} These policies and codes typically apply to athletes, coaches, officials, board and committee members, staff and volunteers. They often cover behaviours beyond safe sport issues, such as the use of recreational drugs during sport organization programs and activities.^{Footnote 46}

We also note that many elements of a sport organization’s code of conduct may overlap with its workplace harassment and violence prevention policy. This is because both aim to create a safe and respectful environment.

In addition to a code of conduct and ethics, certain National Sport Organizations maintain specific policies dedicated to safe sport. Usually, the code of conduct or safe sport policy outlines the disciplinary process and corrective measures for their violation. In some cases, they may refer to a separate internal disciplinary policy. These disciplinary processes often involve complaints being referred to Independent Third-Party Mechanisms. We will explore this process further in Chapter 16.

Meanwhile, federally funded National Sport Organizations and Multisport Service Organizations that adopt the Canadian Safe Sport Program refer reports of maltreatment and other prohibited behaviours that fall within the jurisdiction of the Canadian Safe Sport Program to the Canadian Centre for Ethics in Sport. The Canadian Safe Sport Program is explored in detail in Chapter 16.

We also note that, particularly since the rise of the Black Lives Matter movement in 2020, many National Sport Organizations and Multisport Service Organizations have adopted anti-racism, equity, diversity and inclusion (EDI) policies or strategies.^{Footnote 47}

Provincial and territorial level policies and codes of conduct

Provinces and territories across Canada are currently at different stages in developing their safe sport policies. To date, no provincial or territorial government has required all sport organizations within its jurisdiction to adopt the Universal Code of Conduct to Prevent and Address Maltreatment in Sport.

On one hand, some provincial and territorial governments impose safe sport policies on sport organizations within their jurisdiction. On the other hand, some National Sport Organizations mandate their member Provincial and Territorial Sport Organizations to adopt the Universal Code of Conduct or other safe sport policies as a condition of their membership. This generally happens when there is a high degree of vertical alignment between the National Sport Organizations and its provincial and territorial counterparts.

Considering the above, provinces and territories have implemented three main approaches to safe sport policies. They are discussed in more detail below:

1. The government or the provincial or territorial federation of sport organizations develops a universal code of conduct or safe sport policy. Sport organizations in the province or territory are then required to adopt the code or policy to receive funding (British Columbia and Saskatchewan).
2. There is no universal code of conduct or safe sport policy, but Provincial and Territorial Sport Organizations are required to adopt their own. This requirement comes either from a statute (Quebec) or as a condition to receive funding (New Brunswick).
3. There is no universal code of conduct or safe sport policy and no general requirement that Provincial and Territorial Sport Organizations adopt their own. Sport organizations can decide to implement or not their own universal code or safe sport policy.

Provinces and territories with universal safe sport policies or codes of conduct

There are universal codes or policies to address maltreatment in sport in both British Columbia and Saskatchewan. There are also centralized initiatives in the Northwest Territories and Manitoba.

British Columbia

The provincial government and ViaSport created the “British Columbia Universal Code of Conduct.” All provincially funded sport organizations in British Columbia must comply with this code.^{Footnote 48} It notably incorporates key elements of the Universal Code of Conduct to Prevent and Address Maltreatment in Sport.^{Footnote 49}

The enforcement of the British Columbia Universal Code of Conduct is currently decentralized. Each sport organization is responsible for investigating violations of the Code and handling the disciplinary process. This has to be done as outlined in their Discipline and Complaints Policy (or equivalent).^{Footnote 50}

However, as we will discuss in Chapter 16, the Government of British Columbia has announced its intention to establish an independent not-for-profit organization to administer an independent complaint mechanism.^{Footnote 51}

Saskatchewan

Sask Sport has made the adoption of its “Safe Sport Manual and Procedures” mandatory for all Provincial Sport Organizations and Multisport Service Organizations under its membership.^{Footnote 52} Its adoption is required in order to receive funding from Sask Sport.

Importantly, this manual incorporates the Universal Code of Conduct to Prevent and Address Maltreatment in Sport as a foundational document, and member sport organizations must adopt it.^{Footnote 53}

Northwest Territories

The Northwest Territories adopted a Safe Sport Framework in 2022 which outlines the government’s safe sport strategy.^{Footnote 54}

This framework, which is not mandatory, aims for all Territorial Sport Organizations and recreation organizations to use aligned or equivalent policies to ensure consistency. This mission is to be supported by creating a Safe Sport Policy Suite template. Furthermore, the framework recommends using an Independent Third Party to hear safe sport complaints in the territory.

Manitoba

Provincial Sport Organization recognized by Sport Manitoba are currently required to incorporate safe sport principles into their policies.^{Footnote 55} However, on March 6, 2025, the Government of Manitoba introduced Bill 21 – The Protecting Youth in Sports Act.^{Footnote 56} If enacted, the Act would require Sport Manitoba to establish a safe sport policy “that is designed to ensure that all young athletes have a safe and positive experience when participating in sports.”^{Footnote 57}

The policy would need to establish procedures for complaints and investigations. It would also outline the disciplinary measures that may be imposed if an individual is found to have engaged in maltreatment or behaviour contrary to the policy.^{Footnote 58} All Provincial Sport Organization recognized by Sport Manitoba would be required to adopt and implement the policy.^{Footnote 59}

We further note that under the Act, Sport Manitoba would have to appoint an Independent Third Party to hear and adjudicate complaints of maltreatment involving young athletes.^{Footnote 60}

Provinces and territories without universal safe sport policies or codes of conduct

Provincial and Territorial Sport Organizations that operate in provinces and territories without a universal safe sport code or policy (other than Quebec) are generally not required to implement their own safe sport policies.

Quebec is an exception because the province passed a law, the Act respecting safety in recreation in sports,^{Footnote 61} that requires Provincial Sport Organizations in the province to adopt safe sport regulations.^{Footnote 62}

In some jurisdictions, like Ontario and Alberta, Provincial Sport Organizations must adopt a code of conduct or policy that addresses abuse as a condition for receiving government funding.^{Footnote 63}

There are also jurisdictions where there is no requirement at all to adopt a safe sport code or policy. This is the case in Prince Edward Island, the Yukon and the Northwest Territories.^{Footnote 64}

Finally, some Provincial and Territorial Sport Organizations may need to adopt safe sport policies due to their affiliation with a National Sport Organization, rather than because of provincial requirements.^{Footnote 65} These policies may directly reference the Universal Code of Conduct to Prevent and Address Maltreatment in Sport. For example, Volleyball Canada has a pan-Canadian abuse policy that applies to Volleyball Canada and all its provincial and territorial counterparts.^{Footnote 66}

Like National Sport Organizations, many Provincial and Territorial Sport Organizations have integrated anti-racism, equity, diversity and inclusion (EDI) policies into their rules, in addition to their existing code of conduct.^{Footnote 67}

Safe sport policies and codes of conduct in Community Sport Organizations, university and college

Community Sport Organizations

At the local and grassroots level of sport, clubs, associations and community sport programs may have their own safe sport policies. However, at this level of sport, organizations are generally not required to adopt safe sport policies or the Universal Code of Conduct to Prevent and Address Maltreatment in Sport. There are two notable exceptions to this.

First, in Quebec, some grassroots and local organizations may be considered “sport bodies” under the Act Respecting Safety in Recreation and Sports. Sport associations, leagues and clubs that fall under this definition are required to adopt safety regulations according to the Act and its associated regulations.^{Footnote 68}

Second, some grassroots and local organizations may need to adopt safe sport policies because of their affiliation with a Provincial or Territorial Sport Organization. As discussed earlier, they may even have to adopt the Universal Code of Conduct to Prevent and Address Maltreatment in Sport.

Even without these requirements, grassroots and local sport organizations may still choose to voluntarily implement their own codes of conducts or policies. Naturally, the content of the safe sport policies and codes of conduct at the local and grassroots level will vary from one organization to another.

According to a survey conducted by the Canadian Fitness and Lifestyle Research Institute in 2020-2021, 74% of sport organizations, including National Sport Organizations, Provincial and Territorial Sport Organizations and Community Sport Organizations, have written policies or guidelines on abuse and harassment in sport while slightly more than half have policies that address discrimination.^{Footnote 69}

University and college sport

Generally speaking, while there are many common themes and shared best practices among universities and colleges, each has its own set of safe sport policies, procedures and enforcement mechanisms.

Universities and colleges can voluntarily decide to adopt the Universal Code of Conduct to Prevent and Address Maltreatment in Sport. The fact that they are not obliged to adopt this Code partly explains why its application varies and is generally limited within their sport programs.

Nevertheless, the Universal Code of Conduct may still apply to post-secondary athletes, coaches, staff and other designated participants if they take part in certain university and college sporting activities organized by national governing bodies who have adopted the Universal Code of Conduct.^{Footnote 70}

For instance, this is the case for certain national championships organized by U Sports and the Canadian Collegiate Athletic Association. As national Multisport Service Organizations that receive federal funding, these institutions are required to adopt the Canadian Safe Sport Program and the Universal Code of Conduct.^{Footnote 71}

That said, not all universities and colleges are members of these governing bodies. As of June 2025, U Sports had 58 member universities,^{Footnote 72} and the Canadian College Athletic Association had 98 members.^{Footnote 73} The Canadian College Athletic Association’s members include colleges, universities, technical institutes and cegeps located in nine provinces.

Aside from safe sport policies, student-athletes, coaches and support personnel are also subject to their respective post-secondary institution’s rules and policies. These include student-athlete codes of conducts and policies against violence, harassment and discrimination, all of which may address various aspects of safe sport.

It is important to note that not all universities and colleges adopt sport-specific policies. In such cases, only generally applicable policies would apply. Moreover, other workplace policies and collective agreements might prevail for employed individuals such as coaches.

Participant perspectives on safe sport policies and codes of conduct

We heard mixed opinions from participants regarding the Universal Code of Conduct to Prevent and address Maltreatment in Sport. However, it was generally welcomed as a positive advancement because it provides standard definitions of maltreatment.

Most of the people with whom we engaged felt that it is important to have a shared understanding of what constitutes maltreatment in sport and to have clear guidelines on which behaviours are inappropriate.

Content of the Universal Code of Conduct

Sport organizations, athletes, coaches and other participants have voiced criticism regarding the Universal Code of Conduct to Prevent and Address Maltreatment in Sport. They find it too complicated and difficult to understand. They noted that the Code was written in dense legalese, making it difficult for the average reader to understand, and called for it to be rewritten in an easily accessible, plain language.

Participants also stated that the Universal Code of Conduct should:

• Be regularly reviewed and modernized, noting that some forms of maltreatment like cyberbullying and digital exploitation over social media are missing.
• Be modified to address the unique role of physicians within sport and consider their own codes of ethics.
• Better address issues related to the governance of sport organizations.
• Be revised to ensure that the definitions of abuse and maltreatment are contextually specific, including considerations of para sport. For example, para-athletes have specific needs, and the rules must be interpreted contextually to ensure that the unique requirements of athletes with high support needs are not overlooked.

Some National Sport Organizations and national level athletes also commented that the Universal Code of Conduct to Prevent and Address Maltreatment in Sport had too broad a scope. They noted that it addressed “grievances” and “trivial matters” rather than issues of maltreatment or abuse.

It was mentioned that the “one size fits all” definitions are not adapted to the high-performance environment. High-performance athletes, for instance, told us that while they need to be pushed to succeed, this must always be done with respect and dignity. They explained that a grey zone exists between pressure to perform and what could be considered abuse.

Limited reach of the Universal Code of Conduct

Concerns were consistently raised about the limited reach of the Universal Code of Conduct to Prevent and Address Maltreatment in Sport. Although we understand that the purpose of the Universal Code of Conduct was to have a single policy that could apply to all levels of sport, we were advised that very few organizations below the national level of sport have actually adopted it.

It was reported that the Universal Code of Conduct essentially finds no application at the local and grassroots level of sport. This was particularly concerning for participants who emphasized that a significant majority of maltreatment occurs at the grassroots level.

Along the same lines, we learned that the Universal Code of Conduct’s application to Multisport Service Organizations is limited to major games and to a limited subset of the persons associated with these sport organizations.

Application of the Universal Code of Conduct

Overall, participants found it difficult to understand when or if the Universal Code of Conduct to Prevent and Address Maltreatment in Sport applied. This was complicated because most sport organizations also have their own policies, which allows multiple codes of conduct to apply at the same time to one individual.

Arbitrators also noted that it is difficult to adjudicate safe sport disputes when multiple codes of conduct apply concurrently. This occurred when, for example, a club, a provincial sport organization and a national sport organization each have their own code.

Other policies and codes of conduct at all levels of sport

Aside from the Universal Code of Conduct to Prevent and Address Maltreatment in Sport, participants expressed serious concern that no one reads safe sport policies and that sport organizations do not enforce them. We also heard that there is a general lack of reporting structures to hold individuals and organizations accountable for violations of anti-racism, equity, diversity and inclusion policies (DEI).

In many instances, sport organizations have safe sport policies, but these are not communicated to the lower levels of sport. There is also generally a lack of understanding of safe sport policies. Moreover, a recurring comment was that safe sport policies, although varying among organizations, need to extend beyond the field of play, which is not always the case. For example, these policies should apply to team travel and virtual communications between coaches and athletes.