Fighting sexual violence in Quebec’s higher education institution: First round of feedback on Act P-22.1.  

In 2017, the Quebec government passed Act P-22.1² to prevent and combat sexual violence (SV) in higher education institutions. Institutions must put in place concrete policies and measures for prevention, support, awareness and accompaniment. These are designed to protect students and staff from SV. To monitor the implementation of this law, the government is requiring institutions to carry out an annual reporting exercise, as well as a five-year review of their policies and practices against SV.  

In 2025, 8 years after the adoption of Act P-22.1², this article takes stock of the initial results, the new directions proposed by the government and post-secondary experts, and the limits of current practices in the fight against SV. 

Results and trends in the fight against SV in higher education. 

8 years of implementation and adaptation. 

The ministère de l’Enseignement supérieur (MES) has set up a number of tools, detailed in our article, to help establishments adapt to the requirements of the law. 

To complete the obligations introduced by the law, the government has also clarified some of its provisions in new legislation: 

Act 25, to modernize legislative provisions as regards the protection of personal information (LQ 2021, c. 25), amends laws on the protection of personal data, enabling survivors to follow the progress of their complaint via their establishment³.  

The Act to assist persons who are victims of criminal offences and to facilitate their recovery (RLPQ, c. P-9.2.1), enables institutions to better support survivors of assault⁴.  

Finally, the Act to ensure the protection of trainees in the workplace (LQ2022, c. P-39.3), improves internship conditions by providing access to legal resources and reparation measures in the event of SV⁵. 

By ensuring that survivors have access to information, support, accompaniment and protection, the Quebec government is proactive in the fight against SV in the post-secondary environment.  

To build its Action Plan¹², the MES also called on experts. In 2021, it formed an Advisory Committee on the fight against SV. It is made up of academic representatives from college and university networks, students, researchers and representatives from various ministries. Specified in the Action Plan¹², its mandate is to “share issues, needs and recommendations relating to sexual violence in higher education establishments” (2022, p.21). More recently, in March 2022, 250 partners were also invited by the Ministry to discuss the various axes and measures of the Plan d’Action pour prévenir et contrer les VACS en enseignement supérieur 2022-2027¹². 

An Adjusted Action Plan 

Drawing on expert groups, institutional assessments and feedback from non-profit organizations involved in the fight against SV in post-secondary education, the government is proposing its new Action Plan 2022-2027¹². This Plan aims to strengthen and deepen the capabilities of Act P-22-1² to better counter SV in higher education while integrating learning and feedback from the field.  

By adopting a global approach, also known as the Whole School approach⁸, the government presents SV as a complex, multifactorial problem resulting from individual and collective actions. The 2022-2027 Action Plan¹² focuses on intersectoral and intersectional interventions. It is structured around 3 axes: 

1. Prevention 

2. Supporting people 

3. Develop knowledge and share expertise for better action 

The Plan includes 11 measures and is largely based on the evaluation report of the Stratégie d’intervention pour prévenir et contrer les violences à caractère sexuel en enseignement supérieur 2017-2022¹¹. Launched 1 year after Act P-22.1² came into force, this evaluation proposes several avenues for improvement, including: 

• Improved support for institutional training ; 

• Consultation of all stakeholders (intersectoral approach) ; 

• Support for research and evaluation ;  

• Sustainable funding for schools to guarantee services to combat SV ; 

• Additional support for smaller educational establishments.  

The “ Rebâtir la confiance⁹” report, produced by the Expert Committee on Support for Victims of Sexual and Spousal Assault, also influenced the construction of this Plan. Among the 190 recommendations, two specifically addressed to the MES were decisive: 

1. Recommendation 140: Evaluate the application of the Act and follow up with the communities concerned. 

2. Recommendation 141: Devote resources to implement the Act, with an emphasis on awareness and prevention measures targeting the college and university community. 

At the same time, direct consultations and discussions with local stakeholders identified two imperatives for the establishments: 

1. The need for support in the training of staff and facility teams; 

2. The need for increased funding to ensure continuity of services. 

With clear objectives and measures spread over 5 years, the government hopes to strengthen the fight against SV in post-secondary environments in the long term. The “Rebâtir la confiance” report⁹ stresses that, thanks to Act P22-1, “the organizations we met emphasized the rapid handling of a wide variety of situations and access to follow up resources within educational institutions made possible by the Act. The application of the Act provides an ideal entry point for victims” (2020, p.161). 

A reading of the Action Plan¹² reveals a new angle on prevention and awareness raising. The government invites reflection on the social, educational and professional consequences of SV, while promoting an intersectoral approach. In this sense, it establishes a direct link between SV and their potential long-term repercussions on the socio-professional and socioeconomic future of students.  

A long-term approach: the socioeconomic consequences of SV in higher education settings. 

Contextualizing the socioeconomic impacts of SV in educational settings 

In 2016, 46,8 % of respondents to the Enquête Sexualité, Sécurité et Interactions en Milieu Universitaire⁶ (ESSIMU) survey identified teaching or study activities (courses, teamwork, internships, dissertations, theses, etc.) as the university context most frequently associated with SV. This finding is part of a broader context of social struggles and progressive movements that accompanied the emergence of Act P-22.1². These movements, strongly supported by feminist demands, called for safer environments, denouncing the many cases of sexual violence recorded in these spaces…  

The ESSIMU⁶ survey revealed alarming figures: 39.2% of male and 26% of female students, as well as 44.9% of male and 27.1% of female employees, said they had witnessed SV committed by another member of their university since joining. These data highlight the scale of the problem and its impact on university communities. 

Buoyed by these findings and social demands, Canada’s federal and provincial governments have put in place funding and action plans focused on protecting the socioeconomic and socio-professional futures of the next generation. Among these initiatives is the Women’s Program¹⁰, led by Women and Gender Equality Canada, which aims to “achieve the full participation of women in the economic, social and democratic life of Canada through systemic change”.  

 In the same vein, the Action Plan¹² put forward by the Quebec government emphasizes the importance of “rapid support for SV victims, as the best way to limit the impact on their personal lives and studies”. 

The MES mission: a lever for socioeconomic development 

The MES also states that its main mission for the next 5 years is “To offer as many students as possible accessible, flexible training programs adapted to their needs […] guaranteeing their personal and professional success, and to participate actively in the economic, social and cultural development of Quebec” (2022, p.23).  This vision is in line with the 3rd principle of the Sustainable Development Act¹ or the principle of economic efficiency, based on the clear objectives of graduation and access to employment for all. 

Indeed, the fight against SV is not limited to a moral or legal framework; it is also essential to preserve the socioeconomic future of victims and, more broadly, that of Quebec students. The government recognizes that SV has a direct and lasting impact on students’ academic success, mental health and integration into society and the job market. 

Commitments to Secure the Socioeconomic Future of the Next Generation 

SV can have a profound and lasting impact on students, both personally and professionally. Based on the expertise of the YWCA Montreal and the measures proposed by the Quebec government, this section makes the link between these different concepts. 

The PIECES⁷ and ESSIMU⁶ surveys show that SV is associated with negative repercussions in many spheres of life, including the professional, personal and social spheres, as well as physical and psychological health.  In the academic environment, specific repercussions have been noted: 

• A drop in academic results; 

• A significant increase in absenteeism from class; 

• Difficulty concentrating in class; 

• Intentions or decisions to leave the school. 

Long-term support for survivors 

In light of these findings, Axis 2 of the Action Plan¹² is dedicated to supporting victims of SV. Act P22.1² has made it possible to introduce policies and practices offering short- and medium-term care for survivors. However, as recommended in the ESSIMU⁶ and PIECES⁷ surveys, long-term support is needed to limit the risk of post-traumatic stress.  

To ensure the continuity of this support, funding for the “guichets uniques” must be maintained and reinforced. These structures play a key role in coordinating the services offered, particularly in terms of psychological, legal and academic support. 

In addition, reflection based on an analysis by gender and the intersectional approach is essential. This approach invites establishments to take into account the vulnerability of certain populations, in particular:   

• Women 

• Visible minorities 

• People with disabilities  

• Indigenous people 

• International students. 

Adapting spaces and structures 

Axis 1 of the “Prevention” Action Plan includes measures to improve the safety of facility infrastructure. For example, spaces such as parking lots, hallways, washrooms and locker rooms – often perceived as isolated and unsafe – should be better lit and landscaped. The YWCA Montreal stresses the importance of easy, discreet access to support services. One-stop shops should be located in areas that are accessible but not too exposed to avoid stigmatizing survivors seeking help. An effective solution is to group several services together in the same area, with a common waiting room, enabling students to consult various services (guidance, psychosocial support, administration, etc.) without attracting particular attention.  

Training Staff for Systemic Change 

Axes 1 and 3 highlight the importance of training facility staff. Although they are on the front line, care workers are not the only ones who have to intervene in SV situations. All staff – whether teaching, administrative or technical – can have a significant impact on the overall health and academic, social and professional well-being of students. Widespread awareness and sharing of best practices are needed to initiate systemic change. 

In conclusion, guaranteeing students’ socioeconomic futures requires coordinated action, sustainable funding and an inclusive approach. By strengthening available support, securing infrastructure, and mobilizing all stakeholders, Quebec can truly transform its higher education environments into safe, inclusive spaces for all. 

Communities left behind  

Although the Action Plan adopts an intersectional approach, the specific measures for survivors of indigenous populations remain insufficient compared to the recommendations made in the Rebâtir la confiance⁹ report.  

This report underlines the importance of placing violence at a historical and social perspective, taking into account the systemic factors that contribute to such behaviour. Indigenous women, who are particularly vulnerable because of their gender and ethnic origins, are over-represented among victims of sexual violence, accounting for 33% of crimes committed against them, compared with 10% for non-Indigenous women. These realities underline the urgency of adopting adapted and holistic approaches to better support these communities. 

Initiatives such as Dawson College’s First Nations Centre demonstrate the importance of informed, culturally appropriate support. However, to respond effectively to the needs of Indigenous populations, it is crucial to recognize the challenges associated with family remoteness, language differences and unfamiliarity with non-Indigenous urban systems. These factors can increase culture shock and barriers to accessing services. Psychosocial support that is sensitive to these realities, as well as inclusive policies that respect the norms and values of Indigenous communities, are essential to bring about genuine systemic change in higher education environments. 

References  

1. Assemblée nationale du Québec. (2006, 19 avril). RLPQ, c. D-8.1.1. Loi sur le développement durable. Disponible sur D-8.1.1 – Loi sur le développement durable 

2. Assemblée nationale du Québec. (2017, 8 décembre). RLPQ, c. P-22.1. Loi visant à prévenir et à combattre les violences à caractère sexuel dans les établissements d’enseignement supérieur. Disponible sur p-22.1 – Loi visant à prévenir et à combattre les violences à caractère sexuel dans les établissements d’enseignement supérieur 

3. Assemblée nationale du Québec. (2021, 22 septembre). LQ2021, c.25. Loi modernisant des dispositions législatives en matière de protection des renseignements personnels. Disponible sur  LQ 2021, c 25 | Loi modernisant des dispositions législatives en matière de protection des renseignements personnels | CanLII 

4. Assemblée nationale du Québec. (2021, 1 octobre). RLPQ, c. P-9.2.1. Loi visant à aider les personnes victimes d’infractions criminelles et à favoriser leur rétablissement. Disponible sur p-9.2.1 – Loi visant à aider les personnes victimes d’infractions criminelles et à favoriser leur rétablissement 

5. Assemblée nationale du Québec. (2022, 24 août). RLPQ, c. P-39.3. Loi visant à assurer la protection des stagiaires en milieu de travail. Disponible sur P-39.3 – Loi visant à assurer la protection des stagiaires en milieu de travail 

6. Bergeron, M., Hébert, M., et al. (2016). Violences sexuelles en milieu universitaire au Québec : Rapport de recherche l’Enquête Sexualité, Sécurité et Interaction en Milieu Universitaire (ESSIMU). Montréal : Université du Québec à Montréal. Disponible sur Rapport-ESSIMU_COMPLET.pdf 

7. Bergeron, M., Gagnon, A., et al. (2020). Rapport de recherche de l’enquête PIECES ; Violences sexuelles en milieu collégial au Québec. Chaire de recherche sur les violences sexistes et sexuelles en milieu d’enseignement supérieur, Université du Québec à Montréal. Disponible sur  PIECES_Rapport_recherche.indd 

8. Bergeron, M., Lavoie Mongrain C. (2020). Vers une approche globale et concertée en prévention des violences sexuelles dans les établissements d’enseignement supérieur : pour une planification proactive de l’offre de services. Montréal, Chaire de recherche sur les violences sexistes et sexuelles en milieu d’enseignement supérieur, Université du Québec à Montréal, disponible sur Vers une approche globale et concertée en prévention des violences sexuelles dans les établissements d’enseignement supérieur : pour une planification proactive de l’offre de services 

9. Corte, E., Desrosiers, J., et al. (Décembre 2020). Rapport du comité d’experts sur l’accompagnement des victimes d’agressions sexuelles et de violence conjugale. Rebâtir la confiance. Disponible sur Synthèse – Rebâtir la confiance 

10. Femme Égalité des Genres Canada. (n.d). Programme de promotion de la femme [Site internet]. Programmes de financement pour les femmes et l’égalité des genres – Canada.ca 

11. Gouvernement du Québec. (Octobre 2021). Stratégie d’intervention pour prévenir et contrer les violences à caractère sexuel en enseignement supérieur 2017-2022. Rapport d’évaluation. Disponible sur Rapport d’évaluation – Stratégie d’intervention pour prévenir et contrer les violences à caractère sexuel en enseignement supérieur 2017-2022 

12. Gouvernement du Québec. (2022) Prévenir et contrer les violences à caractère sexuel en enseignement supérieur. Plan d’action 2022-2027. Disponible sur Plan d’action contre les violences sexuelles enseignement supérieur