Despite recent progress, Canadian women veterans feel overlooked by Veterans Affairs Canada (VAC) programs, according to a groundbreaking report by the Standing Committee on Veterans Affairs.
Women veterans believe their needs have been inadequately addressed, leaving them feeling invisible. Stephanie Hayward, a veteran, is quoted in the report — and it outlines her harrowing story.
She was going through basic training in Saint-Jean, Que., in 2009, when she was “drugged, kidnapped, and gang-raped” while attending mandatory training.
“The last thing I remember is dozing off in the class after our lunch break in the cafeteria, and waking in complete fear in an unknown location, with motel staff waking me. I was completely naked, with no identification, covered in blood and bruises, and I couldn’t walk.”
Stephanie Hayward, Canadian Armed Forces veteran
The crime was covered up, she said, and she watched the “criminals” climb the military ranks. She was forced into poverty and suffered medically untreated conditions for 11 years. For a time, Hayward was homeless. She had severe complications and pain from untreated military injuries in both her pregnancies, and said “both of my children have medical conditions due to complications in labour due to military injuries.”
She applied four times to Veterans Affairs and was finally approved for the rehabilitation program 11 years after the date of her release. Hayward started with the OSI Clinic at Deer Lodge in Winnipeg in November 2020.
“I started my PTSD therapy, and it truly saved my life,” she said.
Historical portrayals of military life
The historical portrayal of military life as masculine and the late opening of all military professions to women in the 1980s contribute to this perception of women feeling invisible, the report found. Recruitment campaigns have struggled to increase the proportion of women in the military, which remains between 16% and 19% of the Canadian Armed Forces (CAF), below the government’s target of 25%.
The land forces see even fewer women, with less than 14% participation.
The stagnation in recruitment affects the veteran population, with women making up only 16% of veterans and 13% of VAC clients. This low representation hinders the integration of women’s concerns into VAC and CAF programs, impacting recruitment efforts.
Internationally, the situation is similar. In the U.S., women constituted 17% of the total force in 2021, with a projected increase to 18% by 2040. The UK, Australia, New Zealand, and France report varying levels of female representation in their armed forces, all facing challenges similar to Canada.
Military Sexual Trauma (MST)
One significant barrier to presenting military careers as attractive to women is military sexual trauma (MST). Reform efforts have largely been driven by external pressures, and the CAF has yet to lead these transformations proactively.
VAC’s handling of MST claims remains a crucial measure of its commitment to women veterans. Over the past three years, approximately 3,400 MST claims have been filed with VAC, many linked to class actions.
The includes the Heyder-Beattie class action — filed against the Canadian government on behalf of current and former members of the CAF who experienced sexual harassment, sexual assault, or discrimination based on sex, gender, gender identity, or sexual orientation.
The settlement includes financial compensation for survivors and commitments to systemic changes within the CAF to prevent future misconduct and improve the handling of such cases.
There is also the Merlo-Davidson class action — filed by former RCMP officers Janet Merlo and Linda Davidson, representing current and former female members of the RCMP who experienced sexual harassment and gender-based discrimination while serving. The lawsuit claimed that the RCMP did not take adequate steps to prevent and address the harassment and discrimination faced by its female members.
The settlement included financial compensation for affected individuals and mandated reforms within the RCMP to address and prevent harassment and discrimination, as well as to improve support for those who experience such misconduct.
The committee acknowledged the courage of women who have come forward with MST claims. The policies often place a significant burden of proof on claimants, and it remains unclear how many claims VAC has accepted.
Historical context
Women have a long history in the Canadian military, starting with the First World War when 2,845 women served as nursing sisters. During the Second World War, more than 50,000 women were in uniform, primarily in administrative roles, with 4,500 military nurses serving overseas. However, post-war programs and services largely overlooked their contributions.
The 1970 Report of the Royal Commission on the Status of Women in Canada paved the way for more inclusive policies. It recommended opening all trades to women, allowing married women to enlist, and eliminating mandatory discharge upon childbirth. These changes culminated in the 1989 Human Rights Tribunal decision that ended gender-based exclusions in military occupations, except for submarines, a restriction lifted in 2001.
Current situation
According to the 2021 Census, there are about 461,240 veterans in Canada, with 74,935 being women (16.2%). Women make up 19.3% of current military personnel, a slight increase from previous years, but still below targets. In the RCMP, women’s representation is higher at 23%, with longer service durations compared to the CAF.
Health indicators
A 2022 survey by Veterans Affairs Canada highlighted several health disparities between male and female veterans. Women veterans report higher rates of chronic illnesses, respiratory conditions, gastrointestinal disorders, depression, and anxiety compared to their male counterparts.
They are also more likely to experience acute injuries from training and higher rates of central nervous system conditions. The suicide rate among women veterans is nearly double that of the general female population.
Research also indicates that women veterans face economic challenges post-release. They experience a 17%-22% decline in income within the first three years, and on average, earn 40% less than male veterans due to factors like disability, caregiving responsibilities, or returning to education. Additionally, servicewomen are significantly more likely to be victims of sexual misconduct during their military service.
Recommendations for change
The Standing Committee on Veterans Affairs issued 42 recommendations to address the unique challenges faced by Canadian women veterans.
One significant recommendation is for Veterans Affairs Canada (VAC) to collaborate with the Canadian Armed Forces (CAF), the Royal Canadian Mounted Police (RCMP), the Canadian Institutes of Health Research, and allied countries to fund and implement a structured long-term research program focused on servicewomen and women veterans.
This program aims to provide a deeper understanding of their specific health and service needs, which have historically been overlooked.
Another notable recommendation calls for the government and the CAF to issue an official apology to women who have served and continue to serve in environments where military sexual trauma has been prevalent for decades. This acknowledgment is a crucial step towards addressing the systemic issues within the military and providing the necessary support for survivors of such trauma.
Additionally, the committee recommends that the Department of National Defence table an annual progress report on the implementation of the Women’s Health Initiative for the next five years. This initiative is designed to improve health services for servicewomen, ensuring that their unique health needs are met with appropriate and timely care. This report aims to foster transparency and accountability in the ongoing efforts to enhance the well-being of women in the military.
All the recommendations
| Recommendation Number | Recommendation | Description |
|---|---|---|
| 1 | Long-term Research Program | Veterans Affairs Canada, together with the Canadian Armed Forces, the Royal Canadian Mounted Police, the Canadian Institutes of Health Research, and allied countries, should fund and implement a structured long-term research program on servicewomen and women veterans, ensuring this research is women-specific. |
| 2 | Tribute to Women Veterans | Veterans Affairs Canada should pay tribute to women veterans of the Canadian Armed Forces with a work of art that honors their commitment and service. |
| 3 | Official Apology | The Government and the Canadian Armed Forces should officially apologize to the women who have served and continue to serve in a culture where military sexual trauma has been allowed to thrive for decades. |
| 4 | Annual Progress Report on Women’s Health Initiative | For the next five years, the Department of National Defence should table an annual progress report on the implementation of the Women’s Health Initiative, ensuring transparency and accountability in improving health services for servicewomen. |
| 5 | Flexibility in Medical Assessments | Veterans Affairs Canada should adopt more flexible assessment criteria for secondary medical conditions, such as chronic pain, resulting from military sexual trauma, to provide fairer evaluations and support for affected veterans. |
| 6 | Holistic Rehabilitation Program | Veterans Affairs Canada should build more flexibility into its rehabilitation program, allowing veterans to access physical, mental, psychosocial, and vocational support simultaneously or based on their greatest needs. |
| 7 | Injury Tracking System | Veterans Affairs Canada, in collaboration with the Department of National Defence and the Canadian Armed Forces, should create an injury tracking system to improve data collection and facilitate research on women veterans’ physical health. |
| 8 | Women’s Health Conditions | Veterans Affairs Canada should clearly define and recognize women’s health conditions and ensure that medical employees are trained to document these conditions, including using female-specific forms for issues related to sexual, urinary, reproductive, and menopausal health. |
| 9 | Medical File Accessibility | The Canadian Armed Forces should ensure that all military personnel receive a copy of their medical file upon release, promoting continuity of care and informed health decisions for veterans. |
| 10 | Specialized Healthcare Access | The Canadian Armed Forces and Veterans Affairs Canada should fund service providers to ensure that all serving women and women veterans have access to healthcare professionals specializing in the treatment of women. Veterans Affairs Canada should also accept diagnoses made by these professionals. |
| 11 | Communication of New Conditions | The Canadian Armed Forces and Veterans Affairs Canada should cooperate in informing veterans and the public when new compensable conditions are recognized, facilitating timely identification, prevention, and treatment within the Canadian Armed Forces and expediting compensation claims processing with Veterans Affairs Canada. |
| 12 | Specialized Training for Medical Personnel | The Canadian Armed Forces should ensure that all medical personnel are trained to diagnose, support, treat, and follow up on medical conditions specific to women, including care related to pregnancy and childbirth, and ensure the availability of women’s health specialists at each base. |
| 13 | Specialized Physical Training for Pregnant Personnel | The Canadian Armed Forces should ensure that CAF members who are pregnant receive specialized physical training support. |
| 14 | Renewal of Personal Military Equipment Contracts | The Department of National Defence should renew personal military equipment contracts only if suppliers can guarantee that their equipment, including maternity wear and footwear, can fit female physiology when such equipment exists. |
| 15 | Hiring More Medical Specialists | The Canadian Armed Forces should hire more medical specialists and help civilian medical specialists to gain cultural competencies about the needs of women servicemembers. |
| 16 | Presumptive Link to Military Service | Veterans Affairs Canada should develop a list of medical conditions for which a presumptive link to military service would be granted when epidemiological studies indicate a higher prevalence of these conditions in veterans compared to civilians, in women veterans compared to the general female population, and in women veterans compared to men veterans. |
| 17 | Registry of Sites with Potential Chemical Exposure | The Canadian Armed Forces should compile a registry of sites where they used or stored chemicals known to be potentially linked to a higher prevalence of certain medical conditions in military personnel and veterans, including in pregnant women and children of veterans, and this registry should be accessible to veterans submitting claims for compensation to Veterans Affairs Canada. |
| 18 | Exposure to Anti-Malarial Drugs | The Government of Canada should determine the number of Canadian women veterans and servicemembers who were exposed to anti-malarial drugs, such as Mefloquine or Lariam, and evaluate the steps allied countries have taken to address the potential risks these drugs posed with regard to reproductive health. |
| 19 | Updating Entitlement Eligibility Guidelines and Table of Disabilities | Veterans Affairs Canada should expedite its updating of the Entitlement Eligibility Guidelines and the Table of Disabilities regarding medical conditions that mainly or exclusively affect women veterans, remove sex-specific biases through a more transparent Gender Based Analysis Plus (GBA +) process, and table a progress report on the initiative to modernize these documents. |
| 20 | Historical Inventory of Operations and Actions | The Canadian Armed Forces should undertake a full historical inventory of all operations, actions, and decisions likely to have affected the medical conditions for which women veterans have filed compensation claims with Veterans Affairs, and this inventory should be regularly and systematically updated and serve as the basis for the presumptive approval of disability claims when other evidence is not available. |
| 21 | Eligibility for Career Transition Training | Veterans Affairs Canada and the Department of National Defence should allow releasing military personnel, particularly those being medically released, to be eligible for training through career transition programs while still serving, including training and support for those who want to become entrepreneurs. |
| 22 | Research on Medical Releases and Health Issues | Veterans Affairs Canada, in partnership with the Canadian Institutes of Health Research, should fund a research program whose objectives include identifying the reasons for the higher proportion of servicewomen who are medically released compared with men, the causes of musculoskeletal problems that affect servicewomen in higher proportions than servicemen, the risk factors that explain the similar proportion of medical releases for mental health problems in servicewomen and servicemen despite the lower participation of women in combat operations, and the risks of military service on fertility and pregnancy. |
| 23 | Barriers to Career Transition | Veterans Affairs Canada should fund a research program focusing exclusively on the barriers to career transition faced by women veterans. |
| 24 | Flexible Childcare Services | The Canadian Armed Forces, in partnership with the appropriate provincial and territorial authorities and respecting their jurisdictions, should offer flexible childcare services adapted to the needs of military personnel. |
| 25 | Public Service Health Care Plan Premiums | The Government of Canada should pay the premiums for the Public Service Health Care Plan for veterans during the first years of their transition to civilian life, when they are not participating in a Veterans Affairs Canada rehabilitation program. |
| 26 | Women-Only Veteran Community Housing | The Government of Canada should contribute financially to the construction of women-only veteran community housing. |
| 27 | Access to Programs and Services for Unhoused Veterans | Veterans Affairs Canada should ensure that unhoused veterans and those with insecure housing are not barred from access to Veterans Affairs Canada’s programs and services simply because they have no fixed address. |
| 28 | Support for Homeless Veterans | Veterans Affairs Canada should do more to find and contact homeless veterans, offer them the appropriate benefits and services, and connect them with emergency or long-term housing supports. |
| 29 | Support for Women Veterans Living Alone | Veterans Affairs Canada should ensure that women veterans who live alone are not at a disadvantage when claiming benefits and services. |
| 30 | Avoiding Re-Traumatization in Claims Process | Veterans Affairs Canada should avoid re-traumatizing veterans and waive the need for them to recount the circumstances of traumatizing events leading to the medical condition for which a claim has been filed when this information has already been compiled by a person acting under the authority of a federal institution and forwarded with the veteran’s consent. |
| 31 | Trauma-Informed Training for Personnel | Veterans Affairs Canada should recognize that their current standard operating procedures often re-traumatize the veteran and establish mandatory in-person, in-depth training sessions on trauma-informed practices for all its personnel. |
| 32 | Gender Based Analysis Plus (GBA +) | Veterans Affairs Canada should publish the Gender Based Analyses Plus (GBA +) of its programs in a way that really assesses the impact of these programs on gender and diversity, and how programs have been changed as a result of such analyses. |
| 33 | Support for Military Families | Veterans Affairs Canada should more clearly recognize the sacrifices that military families must make and accordingly relax the eligibility criteria for benefits and services for the immediate family members of veterans. |
| 34 | Hiring Veterans in the Public Service | The Government of Canada should commit to hiring more veterans in the public service, that Veterans Affairs Canada should lead by example in that regard, and that a Gender Based Analysis Plus be performed on the hiring of veterans. |
| 35 | Identifying Barriers to Benefits and Services | The Department of Veterans Affairs should identify the barriers that veterans, especially women veterans, face in accessing benefits and services, and proactively communicate with veterans when they begin their transition out of the Canadian Armed Forces regarding all benefits and services available to them, regardless of time served. |
| 36 | Ministerial Advisory Group on Women Veterans | Veterans Affairs Canada should create a ministerial advisory group on women veterans, ensuring that both officers and non-commissioned soldiers from the army, air force, and navy, as well as veterans from the Royal Canadian Mounted Police are represented. |
| 37 | Subcommittee on Military Women and Women Veterans | The Canadian Armed Forces / Veterans Affairs Canada Joint Steering Committee should establish a subcommittee on military women and women veterans. |
| 38 | Directory of Programs for Veterans | Veterans Affairs Canada should support the establishment, publishing, and maintenance of a directory of programs offered to veterans by community organizations and other third parties, including those that provide services specifically for women, and ensure that case managers can refer veterans to these programs. |
| 39 | Women-Only Peer Support Programs | Veterans Affairs Canada, in partnership with the Canadian Armed Forces, should offer women-only peer support programs. |
| 40 | Reporting Mechanism Outside Military Chain of Command | The Department of National Defence, in accordance with the many recommendations made in the wake of the Deschamps, Fish, and Arbour reports, should establish a reporting mechanism outside of the military chain of command, provide victims of military sexual trauma with safe and confidential legal resources, and transfer the jurisdiction to investigate sexual misconduct and prosecute its perpetrators to civilian authorities. |
| 41 | Civilian Personnel at Transition Centres | Veterans Affairs Canada, in partnership with the Canadian Armed Forces, should assign civilian personnel to transition centres to support and assist victims of sexual misconduct and other transitioning members in preparing their compensation claims, and collect data on how many transitioning members were thus supported. |
| 42 | Flexibility in Determining “On Duty” Events | Veterans Affairs Canada should review its “Disability Benefits in Respect of Peacetime Military Service—The Compensation Principle” to provide more flexibility in determining the events in which the participation of women veterans qualifies them to be considered “on duty.” |
View the full report as a PDF at https://www.ourcommons.ca/Content/Committee/441/ACVA/Reports/RP13177333/acvarp15/acvarp15-e.pdf
