Goal 11 of the Federal sustainable development strategy

Improve access to affordable housing, clean air, transportation, parks, and green spaces, as well as cultural heritage in Canada

Why this goal is important

This Goal's focus on promoting public transit and active transportation, providing access to affordable housing, maintaining and improving air quality, and helping Canadians get out in nature supports SDG Global Indicator Framework targets:

• 11.1 By 2030, ensure access for all to adequate, safe and affordable housing and basic services and upgrade slums
• 11.2: By 2030, provide access to safe, affordable, accessible and sustainable transport systems for all, improving road safety, notably by expanding public transport, with special attention to the needs of those in vulnerable situations, women, children, persons with disabilities and older persons
• 11.3: By 2030, enhance inclusive and sustainable urbanization and capacity for participatory, integrated and sustainable human settlement planning and management in all countries
• 11.4: Strengthen efforts to protect and safeguard the world's cultural and natural heritage
• 11.6: By 2030, reduce the adverse per capita environmental impact of cities, including by paying special attention to air quality and municipal and other waste management
• 11.7: By 2030, provide universal access to safe, inclusive and accessible, green and public spaces, in particular for women and children, older persons and persons with disabilities

In Canada, making cities and communities sustainable means improving access to transportation, parks and green spaces, as well as cultural heritage, clean air and affordable housing.

The percentage of households in core housing need, which measures progress against Sustainable Development Goal 11.1, shows housing challenges across Canada. A household is said to be in “core housing need” if its housing falls below at least one of the adequacy, affordability or suitability standards and the household would have to spend 30% or more of its total before-tax income to pay the median rent of alternative local housing that is acceptable (i.e., meets all three housing standards). In 2018, more than 11% of Canadian households were living in Core Housing Need. Many Canadians today experience or are at risk of homelessness, and otherwise face challenges with accessing acceptable housing. These challenges are exacerbated by the COVID-19 pandemic, which has disproportionately negatively affected disadvantaged groups, and have continued to worsen since the COVID pandemic began.

Increased public transit and opportunities for active transportation support the transition to a net-zero economy by reducing air pollution, greenhouse gas emissions and urban congestion. They also support economic growth by enabling greater access to employment as well as other opportunities and services. The COVID-19 pandemic has affected transit systems across Canada. Transit ridership dropped significantly in spring 2020 and has remained below pre-pandemic levels, reducing revenues for many cities and communities. Nevertheless, public transit and opportunities for active transportation are improving in Canada, with several light rail transit projects currently underway in Canadian cities. Cycling networks are also expanding and pedestrian-friendly streets are becoming more common.

Improving air quality is an important part of making cities more sustainable. In 2020-2021, it was estimated that air pollution contributed to 42 premature deaths per 100,000 Canadians every year. Air pollution also worsens health issues, such as asthma, for millions of Canadians. The total economic cost of all health impacts attributed to air pollution is an estimated $120 billion per year from issues such as medical costs and reduced workplace productivity. Reducing air pollution is also important for protecting food security, land use, and cultural activities, which are critical to the mental and physical health of Canadians.

Making cities and communities more sustainable also means providing access to green spaces. Most Canadians agree that access to community green space is important to their quality of life and three quarters say that their local green space could benefit from improvement. Canadians living in communities with populations of less than 10,000 experience more barriers to accessing physical activity than those in larger communities with populations of 250,000 or greater. This means that rural Canadians currently experience greater barriers to accessing green spaces than urban Canadians do, including lack of sidewalks, lack of street lighting, and lack of access to facilities and transportation. These gaps in infrastructure make it harder for those living in rural areas to undertake active transportation. Nature trails are generally free to use, making them an excellent opportunity to advance equity of access to green spaces. Improving access to green spaces also promotes co-benefits for mental and physical health and quality of life, as well as a natural way to cool cities from extreme temperatures as well as promote and maintain biodiversity.

How the Government of Canada contributes

The Government of Canada is committed to addressing homelessness and ensuring affordable housing for all Canadians.

It launched the National Housing Strategy in 2017 and introduced Canada's first Poverty Reduction Strategy in 2018 (updated in 2020) to reduce poverty and homelessness. In April 2022, the federal Budget introduced new measures that will address homelessness and make housing more affordable across the country by:

• putting Canada on the path to double housing construction over the next decade
• helping Canadians buy their first home
• protecting buyers and renters
• curbing unfair practices that drive up housing prices
• continuing to prevent and reduce homelessness and support housing affordability, particularly for the most vulnerable
• addressing the housing needs of Indigenous Peoples

Everyone should have a place to call home, yet access to affordable and acceptable housing is becoming increasingly challenging for many Canadians. Housing affordability issues disproportionately impact low-income and equity-seeking groups. Demand for all types of housing has increased, and more housing, including affordable housing, must be created to address housing needs, especially in fast-growing cities.

Building more homes and making housing more affordable across the country are priorities for the Government of Canada, and will contribute to inclusive, safe, resilient and sustainable communities. The federal government has re-engaged in affordable housing through the National Housing Strategy, which provides a platform for the public, private and non-profit sectors to work together to provide more Canadians with a place to call home.

In the Indigenous context, during the spring and summer of 2022, the government led a distinctions-based engagement process to understand infrastructure needs in Indigenous communities. The results of this engagement will provide a community-defined assessment of the gap between Indigenous and non-Indigenous communities in Canada and support the co-development of infrastructure plans to address critical needs in First Nations, Inuit, and Métis communities. Budget 2022 also announced $4 billion over seven years, starting in 2022-23, to accelerate work in closing Indigenous housing gaps for First Nations on reserve communities, First Nations Self-Governing and Modern Treaty Holder communities, as well as Inuit and Métis communities.

The Government of Canada is working with partners to ensure that cities and communities are resilient and sustainable. The Permanent Public Transit Fund will support new subway lines, light-rail transit and streetcars, electric buses, active transportation infrastructure, and improved rural transit. This will create affordable commuting options and reduce Canada's emissions. It will also provide local governments with predictable transit funding.

Electrification of public transit fleets can be challenging due to the complexities of converting transit systems to a new technology, which involves significant upfront costs associated with zero emission buses and related infrastructure. To bridge this gap, the $2.75 billion Zero Emission Transit Fund offers support to public transit and school bus operators electrifying their fleets.

In addition, the Government of Canada has released its first National Active Transportation Strategy and launched the Active Transportation Fund, which will help build new and expanded networks of pathways, bike lanes, trails and pedestrian bridges and undertake planning studies. This will provide tangible benefits to communities by shortening commute times for families, promoting healthier lifestyles, cutting air and noise pollution, and reducing greenhouse gas emissions.

The new Natural Infrastructure Fund supports projects related to local parks, green spaces, and waterfronts as well as design elements that enhance access to nature. Design elements may include walkways, ramps, signage, lighting, garbage bins, benches, and multi-functional piers. Natural features will also support biodiversity goals and targets by providing wildlife habitat, resources, and connectivity, and these projects can provide public education opportunities related to natural processes and species.

The Green Municipal Fund (GMF) supports innovative and replicable municipal environmental projects through grants, loans, capacity building, and knowledge sharing. With GMF support, municipalities and their partners can pursue plans, studies, pilots, and capital projects across energy, transportation, waste and land use, improving energy efficiency, reducing pollution, and delivering triple bottom line benefits to communities across Canada. Since its original endowment in 2000, the GMF has grown into a $1 billion revolving fund administered by the Federation of Canadian Municipalities. GMF used the investment of $950 million from Budget 2019 to create three new energy efficiency funding offers and endow 7 local climate hubs through the Low Carbon Cities Canada initiative.

The Government of Canada is also committed to improving air quality through the Air Quality Management System. A key element of this approach is the Canadian Ambient Air Quality Standards, which are in place for 4 air pollutants—sulphur dioxide, nitrogen dioxide, fine particulate matter, and ground-level ozone—to protect human health and the environment and to drive continuous improvement in air quality across Canada. The Government of Canada also works to address air pollutant emissions from industrial sectors and equipment, the transportation sector, and consumer and commercial products that are used every day.

The Government of Canada works with other countries to address air pollution originating from outside its borders through international agreements such as the Canada-United States Air Quality Agreement and the Convention on Long-Range Transboundary Air Pollution and its Gothenburg Protocol.

The Government of Canada also provides opportunities for Canadians to get out into nature and experience Canada's cultural heritage, including through Canada's network of national parks, national wildlife areas, migratory bird sanctuaries, national historic sites, and other protected areas. The government has launched a new National Urban Parks program to create a network of national urban parks in collaboration with local authorities, Indigenous groups, and stakeholders with the goal of protecting biodiversity, supporting health and well-being, advancing reconciliation with Indigenous Peoples, and connecting Canadians with nature.

Internationally, the Government of Canada adopted the New Urban Agenda at the United Nations 2016 Habitat III Summit in Ecuador. This will strengthen the commitment to make a meaningful contribution to the sustainable development of towns, cities and human settlements for the next 20 years.

Additional context and updates regarding this goal

Targets, indicators, milestones and contextual indicators

Theme:  Affordable housing and homelessness

Target: Reducing chronic homelessness ⁽¹⁾

By 2028, reduce chronic homelessness by 50% (Minister of Housing and Diversity and Inclusion)

Target: Reduction or elimination of housing need for 530,000 households ⁽¹⁾

By 2028, reduce or eliminate housing need for 530,000 households (Minister of Housing and Diversity and Inclusion)

Short-term milestone: Launch a new Veteran Homelessness Program ⁽¹⁾

By the end of 2023-2024, launch a new Veterans Homelessness program that will provide services and rent supplements to veterans experiencing homelessness in partnership with community organizations.

Short-term milestone: Make progress on reducing chronic homelessness ⁽¹⁾

Reduce chronic homelessness by at least 31% by March 2024.

Theme:  Public transit and active transportation

Target: Public transit and active transportation ⁽²⁾

By 2030, 22% of commuters use public transit or active transportation (Minister of Intergovernmental Affairs, Infrastructure and Communities)

Short-term milestone: Support the purchase of zero-emission buses ⁽²⁾

By the end of 2026, support the purchase of 5000 zero-emission buses and the necessary supporting infrastructure.

Theme:  Air quality

Target: Air quality ⁽³⁾

Increase the percentage of the population across Canada living in areas where air pollutant concentrations are less than or equal to the Canadian Ambient Air Quality Standards from 60% in 2005 to 85% in 2030 (Minister of Environment and Climate Change; Minister of Health)

Short-term milestone: Maintain reduced air pollutant emission levels ⁽³⁾

Canada has achieved its 2020 air pollutant emission reduction commitments under the amended Gothenburg Protocol. These commitments are for 2020 and beyond, and must be maintained on a yearly basis. Over the course of this strategy and beyond, air pollutant emission levels will therefore be maintained at or below the targets in the amended Gothenburg Protocol for sulphur dioxide (55% reduction from 2005 levels by 2020), nitrogen oxides (35% reduction from 2005 levels by 2020), volatile organic compounds (20% reduction from 2005 levels by 2020), and fine particulate matter (25% reduction from 2005 levels by 2020).

Short-term milestone: Strengthen Canadian Ambient Air Quality Standards ⁽³⁾

By the end of 2025, strengthened Canadian Ambient Air Quality Standards will be in place for sulphur dioxide, nitrogen dioxide, ozone and fine particulate matter.

Theme:  Green spaces, cultural and natural heritage

Target: National urban parks ⁽⁴⁾

Designate national urban parks as part of a network, with a target of up to 6 new national urban parks by 2026 and a total of 15 new national urban parks by 2030 (Minister of Environment and Climate Change)

Target: Visitation to Parks Canada heritage places ⁽⁴⁾

By 2026, support at least 23.7 million visitors annually to Parks Canada places (Minister of Environment and Climate Change)

Short-term milestone: Increase visitation to national wildlife areas

By March 31, 2023, increase annual visitation to the 10 national wildlife areas that are part of the Connecting Canadians to Nature Initiative.

Contextual indicator: Air quality  ⁽ⁱ⁾

Air quality indicators present the concentrations of 5 key air pollutants for Canada. Between 2002 and 2016:

• nitrogen dioxide, sulphur dioxide, volatile organic compounds, and peak ground‑level ozone concentrations decreased
• average ground-level ozone concentrations showed almost no change
• fine particulate matter concentrations exhibited variable results

Contextual indicator: Emissions of harmful substances to air ⁽ⁱ⁾

This indicator tracks human-related emissions to air of mercury, lead, cadmium, and their compounds. These substances may have an immediate or long-term harmful effect on the environment and constitute a danger to human life or health.

• mercury, lead and cadmium emissions decreased by 91%, 89% and 95%, respectively, between 1990 and 2020
• the decrease in emissions came mostly from large reductions in the non-ferrous refining and smelting industry

Contextual indicator: Population living close to a public transit stop ⁽ⁱ⁾

This indicator tracks the percentage of the population living within 500 metres of a public transit stop. In 2016, 86.5% of Canadians living in large urban centres (those with a population of at least 100,000 with at least 50,000 living in the core; referred to as census metropolitan areas) had access to public transportation.

Contextual indicator: Proximity to neighbourhood parks ⁽ⁱ⁾

This indicator tracks proximity to neighborhood parks. In 2019, 90% of Canadians reported having a park or green space within a 10-minute journey from their home (93% in large urban areas, and 82% in smaller cities, towns, and rural areas).

Contextual indicator: Visits to parks and public green spaces ⁽ⁱ⁾

This indicator tracks trends in the percentage of Canadian households that report that they visited parks or public green spaces. In 2019, 85% of Canadian households that lived close to a park or green space reported that they had visited it within the past 12 months.

Implementation strategies and departmental actions

Theme:  Affordable housing and homelessness

Implementation strategy: Prevent and address homelessness ⁽¹⁾

Ensure that urban, Indigenous, territorial, rural and remote communities have the support they need to continue to prevent and reduce homelessness by investing in programs and research that help in addressing homelessness.

Implementation strategy: Implement the National Housing Strategy ⁽¹⁾

In addition to providing direct assistance to households in housing need, programs support innovative housing solutions, share knowledge and research, seek to learn from those with lived experience in housing need and adopt a “whole-of-government” approach that aligns housing with other important goals like creating jobs, increasing access to healthcare and education, and preventing violence against women. Funding through the National Housing Strategy also supports improved homeownership options for Canadians.

Implementation strategy: Support affordable housing and related infrastructure for Indigenous communities and communities in the North ⁽¹⁾

Work with provincial, territorial, federal and Indigenous partners to ensure long-term, sustainable and predictable funding to support affordable housing and related infrastructure both north and south of 60, and accelerate work to close gaps in Indigenous housing and infrastructure.

Theme:  Public transit and active transportation

Implementation strategy: Invest in public transit and active transportation ⁽²⁾

Invest in long-term public transit, rural transit and active transportation solutions to provide reliable, fast, affordable and clean ways for people to get around.

Theme:  Air quality

Implementation strategy: Develop, administer and enforce measures addressing air pollution ⁽³⁾

Develop, administer, and enforce regulatory and non-regulatory measures that reduce the impacts of air pollution on the environment and human health.

Implementation strategy: Work with partners to address air pollution ⁽³⁾

Work collaboratively with provinces, territories, and stakeholders to develop and regularly update the Canadian Ambient Air Quality Standards and associated tools and guidance.

Implementation strategy: Encourage communities across Canada to innovate ⁽³⁾

Empower communities to adopt technology, data and innovative solutions to make improvements in quality of life and community infrastructure.

Implementation strategy: Inform Canadians about air quality ⁽³⁾

Help Canadians make informed decisions related to their health and the environment by providing them with up to date and accurate information on local outdoor air quality and strategies to improve their indoor air quality.

Implementation strategy: Research the impacts of air pollution ⁽³⁾

Support research that will enable Canadians and scientists to gain a better understanding of the impacts of air pollution on ecosystems, wildlife, and human health.

Theme:  Green spaces, cultural and natural heritage

Implementation strategy: Develop green spaces close to urban centres ⁽⁴⁾

Develop green spaces in or close to urban centres and facilitate access to them.

Implementation strategy: Enhance visitor experience in parks and historic places ⁽⁴⁾

Encourage Canadians to visit their national parks and historic places, experience the outdoors and learn more about the environment, history and culture. Provide opportunities to foster a connection to nature and culture by expanding and enhancing programs and services (for example, citizen science and conservation management programs) that meet the needs of visitors and facilitate positive and memorable experiences.

Implementation strategy: Promote access to green space, cultural and natural heritage ⁽⁴⁾

Provide opportunities to connect with nature, green spaces, trail networks and culture.

Implementation strategy: Work with partners on conservation ⁽⁴⁾

Engage with Indigenous Peoples, partners and the public and in stewardship activities to protect and conserve cultural and natural space as well as wildlife species and their habitat.

Responsibilities and contributions of federal organizations

¹Target theme: Affordable housing and homelessness

Title	FSDS component	Supports Goal and/or Target	Responsible organization(s)
By 2028, reduce chronic homelessness by 50%	Target	Supports the goal	Minister of Housing and Diversity and Inclusion
By 2028, reduce or eliminate housing need for 530,000 households	Target	Supports the goal	Minister of Housing and Diversity and Inclusion
Launch a new Veteran Homelessness Program	Milestone	Supports the goal and the Reducing Chronic Homelessness Target	Housing, Infrastructure and Communities Canada
Make progress on reducing chronic homelessness	Milestone	Supports the goal and the Reducing Chronic Homelessness Target	Housing, Infrastructure and Communities Canada
Prevent and address homelessness	Implementation Strategy	Supports the goal and the Reducing Chronic Homelessness Target	Housing, Infrastructure and Communities Canada
Implement the National Housing Strategy	Implementation Strategy	Supports the goal and the Reduction or Elimination of Housing Need for 530,000 households Target	Canada Mortgage and Housing Corporation
Support affordable housing and related infrastructure for Indigenous communities and communities in the North	Implementation Strategy	Supports the goal and the Reduction or Elimination of Housing Need for 530,000 households Target	Crown-Indigenous Relations and Northern Affairs Canada Indigenous Services Canada

²Target theme: Public transit and active transportation

Title	FSDS component	Supports Goal and/or Target	Responsible organization(s)
By 2030, 22% of commuters use public transit or active transportation	Target	Supports the goal	Minister of Intergovernmental Affairs, Infrastructure and Communities
Support the purchase of zero-emission buses	Milestone	Supports the goal	Housing, Infrastructure and Communities Canada
Invest in public transit and active transportation	Implementation Strategy	Supports the goal and the Public Transit and Active Transportation Target	Housing, Infrastructure and Communities Canada The Jacques Cartier and Champlain Bridges Inc. National Capital Commission

³Target theme: Air quality

Title	FSDS component	Supports Goal and/or Target	Responsible organization(s)
Increase the percentage of the population across Canada living in areas where air pollutant concentrations are less than or equal to the Canadian Ambient Air Quality Standards from 60% in 2005 to 85% in 2030	Target	Supports the goal	Minister of Environment and Climate Change Minister of Health
Maintain reduced air pollutant emission levels	Milestone	Supports the goal and the Air Quality Target	Environment and Climate Change Canada
Strengthen Canadian Ambient Air Quality Standards	Milestone	Supports the goal and the Air Quality Target	Environment and Climate Change Canada Health Canada
Develop, administer and enforce measures addressing air pollution	Implementation Strategy	Supports the goal and the Air Quality Target	Environment and Climate Change Canada Transport Canada
Work with partners to address air pollution	Implementation Strategy	Supports the goal and the Air Quality Target	Environment and Climate Change Canada Health Canada
Encourage communities across Canada to innovate	Implementation Strategy	Supports the goal	Housing, Infrastructure and Communities Canada
Inform Canadians about air quality	Implementation Strategy	Supports the goal	Environment and Climate Change Canada Health Canada
Research the impacts of air pollution	Implementation Strategy	Supports the goal	Health Canada National Research Council of Canada Transport Canada

⁴Target theme: Green spaces, cultural and natural heritage

Title	FSDS component	Supports Goal and/or Target	Responsible organization(s)
Designate national urban parks as part of a network, with a target of up to 6 new national urban parks by 2026 and a total of 15 new national urban parks by 2030	Target	Supports the goal	Minister of Environment and Climate Change
By 2026, support at least 23.7 million visitors annually to Parks Canada places	Target	Supports the goal	Minister of Environment and Climate Change
Increase visitation to the National Wildlife Areas	Milestone	Supports the goal	Environment and Climate Change Canada
Develop green spaces close to urban centres	Implementation Strategy	Supports the goal, and the National Urban Parks Target	Environment and Climate Change Canada The Jacques Cartier and Champlain Bridges Inc. National Battlefields Commission National Capital Commission Parks Canada
Enhance visitor experience in parks and historic places	Implementation Strategy	Supports the goal and the Visitation to Parks Canada Heritage Places Target	Parks Canada
Promote access to green space, cultural and natural heritage	Implementation Strategy	Supports the goal and the Visitation to Parks Canada Heritage Places Target	Environment and Climate Change Canada The Jacques Cartier and Champlain Bridges Inc. National Battlefields Commission National Capital Commission Parks Canada
Work with partners on conservation	Implementation Strategy	Supports the goal	Environment and Climate Change Canada National Capital Commission Parks Canada

Performance measurement

ⁱIndicators supporting the goal and contextual indicators

Indicator	Target	Source	Update cycle
Growth rate of people experiencing chronic homelessness *	By 2028, reduce chronic homelessness by 50%	Housing, Infrastructure and Communities Canada	Annual - 3-year lag in the availability of data.
Households whose housing need was reduced or eliminated	By 2028, reduce or eliminate housing need for 530,000 households	Canada Mortgage and Housing Corporation	Annually
Population using public transit or active transportation *	By 2030, 22% of commuters use public transit or active transportation	Statistics Canada	Every 5 years
Population exposure to outdoor air pollutants *	Increase the percentage of the population across Canada living in areas where air pollutant concentrations are less than or equal to the Canadian Ambient Air Quality Standards from 60% in 2005 to 85% in 2030	CESI	Annual
Designation of new national urban parks	Designate national urban parks as part of a network, with a target of up to 6 new national urban parks by 2026 and a total of 15 new national urban parks by 2030	Parks Canada	Annual
Number of visits at Parks Canada places	By 2026, support at least 23.7 million visitors annually to Parks Canada places	Parks Canada	Annual
Air quality	Contextual	CESI	Annual
Emissions of harmful substances to air	Contextual	CESI	Annual
Population living close to a public transit stop *	Contextual	Statistics Canada	Occasional
Proximity to neighbourhood parks	Contextual	Statistics Canada	Every 2 years
Visits to parks and public green spaces	Contextual	Statistics Canada	Every 2 years

*Indicators that have also been included in the Canadian Indicator Framework.

For more detailed information see Strengthening transparency and accountability.