Data and Accountability

Data collection is so important. Need consistency across the provinces and territories.
If we don’t have data, it’s hard to identify gaps in marginalized communities
.”[1]

ISSUE

Canada collects comprehensive data across the criminal justice system, but there are gaps.  

KEY IDEAS

BOTTOM LINE

Canada needs a coordinated, outcomes-based data strategy to track sexual violence cases, close systemic gaps, and ensure accountability. Without comprehensive, disaggregated, and accessible data, Canada’s criminal justice system cannot measure progress or effective responses to sexual violence.

RECOMMENDATIONS

10.1 Establish a national data strategy: The federal government should develop and implement a coordinated, multi-jurisdictional data strategy to improve the collection, sharing, and analysis of outcomes-based data on sexual violence.

Our investigation

Specific actions

We are grateful to Statistics Canada who met with us and provided us an opportunity to peer review the Juristat article Criminal Justice Outcomes of Sexual Assault in Canada, 2015 to 2019[2] prior to its publication in November 2024. We welcome many future collaborations.

Background

A society’s ability to identify issues, design evidence-based solutions, and measure the effectiveness of outcomes begins with the question, “What do we know?” The answer to this often leads back to the quality of the information we collect, including both quantitative and qualitative data.

Experiences of real people and critical choices around what information to count and collect, what questions to ask, and who to ask, all contribute to building narratives about the safety, equality, well-being, opportunity, and protections provided to the citizens of any nation state.

“Official statistics provide an indispensable element in the information system of a democratic society, serving the Government, the economy and the public with data about the economic, demographic, social and environmental situation.” [3]

Assessing the effectiveness and responsiveness of Canada’s Criminal Justice System (CJS) to crimes of sexual violence requires detailed, ongoing open access to outcomes-based data at all levels of the CJS. It further requires a deeper understanding of who wants the data, what they need to know, the costly impacts of knowledge gaps over time, and Canada’s ability to progress in ending gender-based violence (GBV).

Dr. Kim Stanton led a similar inquiry into The British Columbia Legal System’s Treatment of Intimate Partner Violence and Sexual Violence, released in June 2025, included a recommendation to create a GBV data strategy with many sectors collaborating and noted:

“The Review found that fragmented data systems across police, prosecutors, courts, and corrections prevent actors within the legal system from getting a clear picture of how GBV cases are handled across the system and over time. This contributes to the systemic barriers of silos and lack of accountability, increases system costs, and impedes effective intersectional analysis of programs and services.” [4]

What we heard

Recognizing progress in data collection, while addressing persistent gaps

“Data collection needs to be improved, and we need to collect data consistently. It is hard to identify gaps without reliable data.” [5]

Improvement of data collection over the years

In a recent issue of the Victims of Crime Research Digest, Kathy AuCoin, retired Manager of the Analysis Program at the Canadian Centre for Justice and Community Safety Statistics, reflects on advances in data over the past 25 years.[6]

Police-reported crime data has improved.

The Uniform Crime Reporting Survey[7] (UCR) accounts for 99% of the population and shows trends in various provinces, territories, and rural communities. The survey updates when Criminal Code amendments occur to stay relevant.

Victimization surveys have advanced.

During our investigation, one survivor shared,

Some significant gaps remain. There is no comprehensive national data for all victim services across Canada, specifically on how victims are accessing services and how their needs are being responded to by the justice system. Statistics Canada tested a pilot for Canadian Victim Services Indicators in 2015-16.  While provincial and territorial results were available, the results could not be compared between the jurisdictions due to varying definitions, available information, and services provided.

Data can fuel solutions

One reviewer of this report noted that we falsely assume that improved data will lead to better public policy, more satisfied complainants, more efficient and fair criminal law, etc.

When the right statistics are not collected, are collected but not published, or are published but not disaggregated, enormous amounts of energy, time, resources, and dollars end up redirected into getting information.

“ I spent almost 20 years trying to get statistics on outcomes of sexual assault reports from my local police service, without success. A professor at the law school volunteered to have his students file a Freedom of Information request and we eventually got five years of data. After that it was back to square one.“ [11]

Not Just Any Numbers, the RIGHT NUMBERS

Data doesn’t exist in a vacuum. Adding a metric or overemphasizing one number in isolation can lead to large fiscal and resource expenditures that may not ultimately change, or even impact, an underlying root cause.

Unfounded

Founded not cleared

X - Still Under Investigation

Y - Insufficient Evidence to Proceed

Z – Victim/Complainant Declines to Proceed (no CSC identified)

Cleared by charge or charges recommended

C - Cleared by Charge

W - Charges recommended but all declined by Crown

Cleared otherwise

D – Suicide of CSC

E – Death of CSC (not suicide)

F – Death of complainant/witness

G – Reason beyond control of the department (policy)

H – Diplomatic Immunity

I – CSC under 12 years of age

J – Committal of the CSC to a mental health facility

K – CSC outside Canada, cannot be returned

L – Victim/Complainant requests that no further action is taken (CSC identified)

M – CSC involved in other incidents

N – CSC already sentenced

O – Departmental Discretion

R – Diversionary Program

S – Incident cleared by a lesser statute

T – Incident cleared by another municipal/provincial/federal agency

Without understanding the reasons for case attrition, stakeholders, policymakers remain unable to meaningfully address issues.

Disaggregated data is an essential tool to understand barriers

“[We] need disaggregated data to showcase the at-risk populations and the need to support agencies that target these populations [Black and racialized communities/survivors].” [13]

In our investigation, we heard from stakeholders that methods of data gathering and reporting, combined with a lack of disaggregated data, can lead to further invisibility and negative consequences for disproportionately impacted and marginalized groups.[14]

Definition: Disaggregated data, sometimes called demographic categories, is data focused on subcategories of statistics, like race, gender, religion, or educational status. This type of data may reveal inequalities and relationships between groups. British Columbia’s Office of the Human Rights Commissioner. (2020). Disaggregated demographic data collection in British Columbia: The grandmother perspective

A 2020 report from the British Columbia’s Office of the Human Rights Commissioner laid out benefits and risks to disaggregated data.[15]

 Benefits  Risks
  • Show patterns, uncover inequalities and differences of groups.
  • Can inform policy, program, and legislative development to tackle systemic inequality
  • Disaggregated data for systemic equality supports human rights frameworks
  • Enables accountability for systemic discrimination and guides equitable resource allocation
  • Data misuse can reinforce colonization, systemic racism, and oppression (historical surveillance of 2SLGBTQI+ people, Japanese Canadians, COVID “hot-spot” policing).
  • Artificial intelligence trained on biased data can stigmatize and misdirect services.
  • Over-researching without follow-up drains community capacity, triggers trauma, and delays action.

 

We recognize the call for data sovereignty

The Assembly of First Nations released a National First Nations Justice Strategy in June 2025. In this report, Indigenous data sovereignty is

The act of Indigenous people, communities, and Nations to have authority over and participate in Data that is created with, by, for, or about them.“[16]

Other Data Sovereignty Initiatives

The 2019 National Inquiry into Missing and Murdered Indigenous Women and Girls (MMIWG) Calls for Justice also addressed intersectional data collection. Call for Justice 5.24:

“ We call upon the federal government to amend data collection and intake-screening processes to gather distinctions-based and intersectional data about Indigenous women, girls, and 2SLGBTQQIA people.“ [22]

Our Expert Advisory Circle (EAC) also raised the need for better data collection and support for Indigenous communities[23]

Government actions to advance data

The National Action Plan to End Gender-Based Violence[24]

Statistics Canada Disaggregated Data Action Plan (DDAP)[25]

Canada’s Black Justice Strategy: Implementation Plan (February 2025)[27]

The Department of Justice’s Indigenous Justice Strategy (March 2025)[28]

Improving data collection can save money

Jurisdictional issues. Data sharing between jurisdictions can be challenging as many incidents happen in multiple jurisdictions, but jurisdictions may not share information.[29]

Data and information gaps generate “invisible“ and exponential costs across sectors. The upfront investment required to develop improved data collection, tracking, and availability would be offset by the elimination of these “invisible“  costs.

We heard that:

Interjurisdictional data would better inform criminal law reforms and funding programs. Dr. Stanton’s 2024 issue paper for the BC investigation noted,

“Data collection and analysis continue to be sources of frustration for many legal system actors and other stakeholders… It appears that publicly shared data collection is very limited, and therefore data analysis is even more limited.

In the absence of government tracking or publicly available data, community-based anti-violence organizations rely upon media reports to tally the number of femicides in the province. Some data is produced only in response to Freedom of Information requests by journalists rather than as a matter of course.“ [31]

In her final report, Dr. Stanton emphasizes the costs of GBV on policing, courts, health care, child welfare, and social services.[32]

A Committee of Experts in Quebec, including the Chief Justice of Quebec, 3 provincial MLAs, the heads of leading Quebec community groups in the GBV sector, and representatives from police, CAVAC, CALAC, Crowns and academics, released a comprehensive report on support for victims of sexual assault and IPV. They recommended more detailed statistics on sexual and domestic violence, applying disaggregated and differentiated analysis, particularly:

“The work and consultations highlighted the paucity of statistics compiled on sexual assault and domestic violence. However, all agreed on the importance of collecting data to quantify the volume, determine the resources (financial or human) required and analyze the results of measures and the rate of public satisfaction. Given the sharing of jurisdiction and resources between the provincial and federal levels of government in criminal matters, such statistical data should be communicated from one government to the other." [Translation]

 Rapport Rebâtir la confiance, Gouvernement du Québec, 2024 at p 197. 

Why it matters

Good data saves time and money. The costs of finding and understanding data are both high and repetitive

Here’s a common question to which there is no simple answer: what is the overall annual attrition rate in reports of sexual violations for

Case study: Unfounded sexual assaults

In 2017, the Globe and Mail published the results of a two-year investigation into sexual assaults being closed as “unfounded“  (meaning the police concluded that no crime occurred or was attempted).[35] The “Unfounded“  series revealed that police were dismissing a disproportionately high number of sexual assault claims compared to other serious crimes.

The series spurred an uncounted number of retroactive reviews of sexual assault investigations by municipal, provincial, federal, and military police across the country. Canadian police services largely reported that high unfounded rates were largely attributable to a clerical problem forcing police to use the unfounded category due to a lack of more accurate options.

This led to a 2018 revision of the clearance code options available to police services when reporting outcomes of investigations to the Canadian Centre for Justice and Community Safety Statistics (CCJS), who compile and release annual reports to the broader public. As new clearance codes were implemented and guidance for case classification revised, the number of sexual assault reports cleared as “unfounded“ dropped across the country.

What the public didn’t know

The series wasn’t the first time the issues relating to unfounded rates were revealed.

The problem had been exponentially compounded by a 2003 Statistics Canada decision to stop collecting data on unfounded sexual assaults altogether, despite the (prescient) warnings of sexual assault advocates and researchers. At the time, not all police services were reporting information on unfounded incidents and, of those that were, not all unfounded records were being submitted to CCJS through the Uniform Crime Reporting Survey. It was suggested that variations in rates of unfounded incidents may have been attributable to inconsistent classification of calls for service that were deemed non-criminal.

Without national and regional statistics on unfounded levels for sexual assault cases, research and evaluation with respect to the high levels of unfounded sexual assaults became difficult, if not impossible. Without these statistics, there was no tracking of trends in founded and unfounded rates and no way of assessing the impact of any corrective measures that may be taken to ensure accuracy in decision-making.[36]

Data on unfounded sexual assault complaints would not be published again for another fourteen years, when the reaction to the Globe and Mail series prompted Statistics Canada, Police Information and Statistics (POLIS) Committee, CACP, and the broader policing community to announce they were resuming collection in 2018.

The Globe and Mail's “Unfounded“  series changed public perception of sexual assault investigations and led to widespread calls for reform and increased scrutiny of police handling of sexual assault cases.

Strengthening data can strengthen accountability

Accountability in sexual violence usually means how perpetrators are, or should be, held responsible for the harm they’ve caused.

If we understand accountability to mean that “someone is responsible for things that happen and can give a satisfactory reason for them” [37] the challenge for survivors comes into sharper focus.

Consider these elements for an accountable system:

In BC, the (2025) Independent Systemic Review: The British Columbia Legal System's Treatment of Intimate Partner Violence and Sexual Violence[38] recommends developing a broad and collaborative gender-based violence data strategy across government agencies and legal system institutions.

Evaluations can drive improvements

Programs, services and activities to respond to sexual violence in the criminal justice system are often interconnected. Cross-cutting case studies, surveys, research can help to bridge the gap between programs, services and activities. Monitoring and evaluation provide evidence-based insights into the effectiveness, efficiency, and relevance of activities and services.

“ Evaluations typically use social science methods such as document reviews, interviews, surveys, case studies, focus groups, statistics and randomized control trials. They can look at a wide variety of sources to gather information, ranging from program beneficiaries to social media to predictive analytics based on big data. They can be conducted before a program is implemented, to inform its design; during a program, to help it adjust course; or after a program is complete or has been running for some time, to assess its impact.“ [39]

Establishment of a Gender-Based Violence Commissioner

There have been discussions about creating a GBV Commissioner in Canada to be able to improve collaboration and transparency.

Figure. LEAF’s infographic on what an independent GBV Commissioner could achieve [43]

Some gaps are known

Our investigation identified a clear need for these data points (this is not an exhaustive list):

 

TAKEAWAY

Survivors deserve a justice system that sees what is hidden and acts on what is known

What we count reflects what we choose to value.

 

Endnotes

[1] SISSA Stakeholder Interview #45

[2] Government of Canada, Statistics Canada, Cotter, A. (2024). Criminal justice outcomes of sexual assault in Canada, 2015 to 2019.

[3] United Nations. (2013). Fundamental principles of official statistics.

[4] Stanton, K. (2025). The British Columbia legal system’s treatment of intimate partner violence and sexual violence. Government of British Columbia.

[5] SISSA Stakeholder Interview #169

[6] Aucoin, K. (2025). A retrospective overview of advances in data o victims of crime in Canada. Department of Justice Canada.

[7] Statistics Canada. (2024). Surveys and statistical programs - Uniform Crime Reporting Survey (UCR).

[8] Statistics Canada. (2021). Surveys and statistical programs - General Social Survey - Canadians' Safety (GSS).

[9] Government of Canada, Statistics Canada, Perreault, S., & Canadian Centre for Justice and Community Safety Statistics. (2020, August 26). Gender-based violence: Unwanted sexual behaviours in Canada’s territories, 2018. Government of Canada, Statistics Canada, Cotter, A., & Savage, L. (2019). Gender-based violence and unwanted sexual behaviour in Canada, 2018: Initial findings from the Survey of Safety in Public and Private Spaces

[10] SISSA Survivor Survey, Response #775

[11] SISSA Stakeholder Interview #194

[12] Government of Canada, Statistics Canada, Conroy, S. (2024). Recent trends in police-reported clearance status of sexual assault and other violent crime in Canada, 2017 to 2022.

[13] SISSA Consultation Table #8: Black and Racialized

[14] SISSA Stakeholder Interview #45: Provincial Victim Services; SISSA Consultation Table #8: Black and Racialized Communities

[15] British Columbia’s Office of the Human Rights Commissioner. (2020). Disaggregated demographic data collection in British Columbia: The grandmother perspective.

[16] Assembly of First Nations. (2025). National First Nations Justice Strategy Report

[17] Assembly of First Nations. (2025). National First Nations Justice Strategy Report

[18] First Nations Information Governance Centre. (2019). The First Nations Principles OCAP®.

[19] First Nations Information Governance Centre. (n.d.). Homepage.

[20] Inuit Tapiriit Kanatami. (n.d.). National Inuit Strategy on Research.

[21] Métis Centre at the National Aboriginal Health Organization. (n.d.). Principles of Ethical Métis Research.

[22] National Inquiry into Missing and Murdered Indigenous Women and Girls. (2019). Reclaiming power and place: The final report of the National Inquiry into Missing and Murdered Indigenous Women and Girls (Vol. 1a).

[23] SISSA Expert Advisory Circle (EAC) Meeting 2024-09-24

[24] Women and Gender Equality Canada. (2024). National action plan to end gender-based violence.

[25] Statistics Canada. (2024). Disaggregated Data Action Plan.

[26] Statistics Canada, Canadian Centre for Justice and Community Safety Statistics. (2025). Report and final recommendations: Police-reported Indigenous and racialized identity data through the Uniform Crime Reporting Survey.

[27] Department of Justice Canada. (2025). Toward transformative change: An implementation plan for Canada’s Black Justice Strategy.

[28] Assembly of First Nations. (2025). National First Nations Justice Strategy ReportIJS_EN.pdf

[29] SISSA Consultation Table #36: Restorative Justice

[30] SISSA Consultation Table #7: Human Trafficking Crown

[31] Stanton, K. (2024). The British Columbia legal system’s treatment of intimate partner violence and sexual violence. Government of British Columbia.

[32] Stanton, K. (2024). The British Columbia legal system’s treatment of intimate partner violence and sexual violence. Government of British Columbia.

[33] Corte, É., & Desrosiers, J. (2021). Rebâtir la confiance: rapport du comité d’experts sur l’accompagnement des victimes d’agressions sexuelles et de violence conjugale. In Secrétariat À La Condition Féminine. Bibliothèque et Archives nationales du Québec.

[34] SISSA Survivor Interview #110

[35] Doolittle, R. (2024, March 26). Unfounded: Police dismiss 1 in 5 sexual assault claims as baseless, Globe investigation reveals. The Globe and Mail.

[36] Research and Statistics Division Department of Justice, Light, L., & Ruebsaat, G. (2006). Police Classification of Sexual Assault Cases as Unfounded: An Exploratory Study.

[37] Definition of “accountability” (2025) https://dictionary.cambridge.org/dictionary/english/accountability#google_vignette

[38] Stanton, K. (2025). The British Columbia legal system’s treatment of intimate partner violence and sexual violence. Government of British Columbia.

[39] Treasury Board of Canada Secretariat (2020, July 23). Policy on Results: What is Evaluation? Canada.ca.

[40] Mass Casualty Commission. (2023). Violence. In Final Report of the Mass Casualty Commission (Vol. 3, p. Recommendation V.1).

[41] Dale, A. & Women’s Legal Education and Action Fund (LEAF). (2024). Establishing a GBV Accountability Mechanism in Canada.

[42] Office of the Federal Ombudsperson for Victims of Crime. (2024). Remarks to the Standing Committee on the Status of Women (FEWO) on Gender-based Violence and Femicides against Women, Girls and Gender Diverse People.

[43] Dale, A. & Women’s Legal Education and Action Fund (LEAF). (2024). Establishing a GBV Accountability Mechanism in Canada.

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2025-11-19