Canadian Heritage Committee on May 15th, 2023

[The Chair, Liberal, Hedy Fry]

Good morning, everyone.

I call this meeting to order.

Welcome to meeting No. 81 of the Standing Committee on Canadian Heritage.

I would like to acknowledge that this meeting is taking place on the unceded traditional territory of the Algonquin Anishinabe people.

Today's meeting is taking place in a hybrid format pursuant to the House order of Thursday, June 23, 2022.

I have a bit of housekeeping. While public health authorities and the Board of Internal Economy no longer require mask wearing indoors or in the precinct, masks and respirators are still excellent tools to protect against the spread of COVID and other respiratory diseases, so they are recommended.

I'd like to take this opportunity to remind everyone that they are not allowed to take photos of your screen. Everything will be out on the public website, so you'll be able to see it there.

For anyone who is virtual, at the bottom of your screen there is a little icon—it looks like a globe—for interpretation. If you press it, it will give you the option of English, French or floor audio. When you speak, speak through the chair. Keep your mike muted when you're not speaking and to ensure that you do not speak unless you are asked to speak, or unless your name is called.

Pursuant to Standing Order 108(2) and the motion adopted by the committee on Tuesday, September 20, 2022, the committee is meeting to continue the study on safe sport in Canada.

I want to welcome witnesses this morning.

From the Canadian Centre for Ethics in Sport, we have Jeremy Luke, president and chief executive officer; and Karri Dawson, executive director, values-based sport.

From Own the Podium, we have Anne Merklinger, chief executive officer; and from Sport'Aide we have Sylvain Croteau, executive director.

To the witnesses, you each have five minutes to give your statement, and then we will move to a question and answer period.

We will begin with opening remarks by Jeremy Luke for five minutes, please.

[Jeremy Luke, President and Chief Executive Officer, Canadian Centre for Ethics in Sport]

Thank you, Madam Chair, for the opportunity to speak to the committee.

My colleague Karri Dawson and I are pleased to be with you today to share perspectives from the Canadian Centre for Ethics in Sport on the critically important topic of safe sport in Canada. Today we will provide you with an overview of the CCES and speak to you about the importance of an independent national inquiry into the state of sport in Canada, along with the importance of education, prevention and culture change as part of the approach to create and maintain a positive sport culture.

The CCES is a national non-profit organization with a vision of fair, safe, accessible and inclusive sport. We have four main pillars of focus. The first is advancing values-based sport through True Sport. The second is fulfilling Canada’s commitment to the World Anti-Doping Code as the country's national anti-doping agency. The third is addressing the emerging threat of competition manipulation associated with gambling in sport. The fourth is offering ethical sport leadership through the development of tools and resources.

The CCES has worked collaboratively with athletes and sport leaders, as well as experts in sexualized violence, in an effort to address issues related to safe sport. An example of this is the work the CCES did in collaboration with sport leaders, athletes and independent academic experts to develop the first version of the UCCMS.

We recognize the substantial efforts being undertaken to address safe sport issues, including the implementation of the UCCMS and the establishment of the Office of the Sport Integrity Commissioner. We also recognize the positive steps towards a safe and accountable sport system, including governance, accountability, education and the sanctions registry announced by the minister last Thursday. We also recognize the enormous courage and effort of a multitude of former and current athletes to shine a bright light on abuse and maltreatment in sport.

However, more needs to be done. On July 25 of last year, the CCES board of directors wrote an open letter to the Prime Minister, calling for an independent national inquiry into the state of sport in Canada. We continue to believe an independent national inquiry is needed to examine the culture of sport and to produce recommendations on how to eliminate maltreatment in sport at all levels.

The commission of inquiry into the use of performance-enhancing drugs in Canadian sport, known as the Dubin inquiry, led to the creation of the CCES in the early 1990s. This was a time when countries around the world, along with sport organizations, were grappling with drug use in sport and how to manage this public health issue. The Dubin inquiry enabled Canada to emerge from this era with clear recommendations that led to culture change in sport and established Canada as a global leader in protecting athletes’ health from performance-enhancing drug use. The same approach should be taken for safe sport.

We also believe there needs to be the same focus on education and prevention to drive positive culture change as there is on compliance, regulation and reporting. Our experience with anti-doping has demonstrated the importance of both detection and deterrence, as well as the impact of values-based education—which we call “True Sport”—to change culture and behaviour.

For safe sport, we need to prioritize a centralized and standardized approach to education, underpinned by a common set of values and principles, in order to ensure we eliminate the behaviours we don’t want and model the behaviours we do want. Often, this area of work is overlooked and under-resourced. For real change to occur, it must be prioritized.

Thank you again for the opportunity to provide an overview of the CCES and to share with you the importance of both an independent national inquiry and a prioritized focus on education, prevention and culture change. The Canadian Centre for Ethics in Sport stands ready to assist in any way possible.

Thank you, Madam Chair.

[The Chair, Liberal, Hedy Fry]

Now, we go to Own the Podium and Anne Merklinger, chief executive officer.

Ms. Merklinger, you have five minutes. I will give you a 30-second heads-up if you get close to five minutes.

[Anne Merklinger, Chief Executive Officer, Own the Podium]

Thank you, Madam Chair, for the invitation to appear before the Standing Committee on Canadian Heritage to elaborate on what we at Own the Podium do, how we do it and why we do it. It is an honour to be here.

It goes without saying that one safe sport issue in our system is one too many. We must all protect the physical and psychological safety of athletes and of everyone involved in high-performance sport in Canada. This may not be obvious to everyone, but it is an absolute non-negotiable.

OTP is a non-profit organization whose mission is to lead and to accelerate the development of Canadian sports, fundamentally, to achieve sustainable and improved performances at the Olympic and Paralympic Games. We have two mandates. The first is to provide leading-edge technical support to national sport organizations. The second is to prioritize investment recommendations by making expert-driven, collaborative funding recommendations based on evidence. Values are, and always will be, the cornerstone for all decision-making.

As it happens, we are in the midst today of an internal review to include an organizational purpose and revised vision, mission and mandate statements that better describe our current approach and priorities. While it is early days in this process, the message is clear that our purpose must reflect the important role Own the Podium plays in supporting our country's sport system and its athletes as they inspire Canadians, not just in winning but in winning well.

OTP provides technical advice to all Olympic and Paralympic sport organizations. The funding recommendations made on behalf of the Government of Canada, the Canadian Olympic Committee and the Canadian Paralympic Committee focus on helping athletes, coaches and sport organizations that show clear evidence of athletes or teams being on the podium pathway over an eight-year horizon. OTP does not financially reward sports for a medal performance.

We believe that high-performance athletes should be afforded the resources and the opportunities to pursue their athletic objectives safely and without regret. Our goal is to help all athletes get to the start line and to know that they have done everything possible to achieve their goals in an environment that promotes and protects their psychological and physical health and safety.

OTP knows that participant wellness—both physical and psychological—is a key prerequisite to everyone achieving their goals. We recently introduced a requirement that all NSOs must have a wellness plan for all participants in the high-performance program. We've also initiated culture assessments and have provided resources to support building positive cultures in the high-performance space. These are just two examples of changes we have made in our approach to protect the psychological and physical health and safety of participants in high-performance sport. I want to stress that the health, safety and well-being of all people in Canada's sport system—from the playground to the podium—are most important. This is not a “win at all costs” approach.

OTP believes it is important for Canada to do well on sport's global stage. Every Olympic and Paralympic Games inspires Canadians to be better versions of themselves, be it at school, at business, at home or in the community. Sport is about developing great people. Every Olympic and Paralympic Games introduces us to a whole new generation of role models for Canada. Every athlete achieving their personal goals through a healthy and an enjoyable journey is a champion for developing a healthier population, more active communities, and a prouder, stronger and united Canada. Sport has an important role in nation-building in our country.

While we must always pursue higher goals, our sport system has to be better at identifying its gaps, continuing to work together, supporting one another, and talking about what it does well and where we can be better. The system needs to demonstrate to Canadians the benefits of sport. Sport, when done right, is an incredible force for good.

It can make our communities better. It builds new generations of leaders. It's good for the physical and mental health of everyone involved, and so much more.

Significant work remains ahead of us, but change is happening. Creating a healthier, safer and more inclusive place for all is, and must always be, our top priority. This is not a choice. We must never settle for “good enough” in this area. We must always put people first, hold ourselves accountable regularly and drive further down this path every day to ensure all Canadians can enjoy the benefits of sport.

Thank you, Madam Chair.

[The Chair, Liberal, Hedy Fry]

Thank you very much, Ms. Merklinger.

I will go to Sport'Aide with Sylvain Croteau, please.

You have five minutes.

[Sylvain Croteau, Executive Director, Sport'Aide]

Thank you, Madam Chair.

On behalf of Sport'Aide, thank you for inviting us here today to share our vision, which is informed by our comprehensive, positive, accountable and sustainable approach.

Sport'Aide has been active in Quebec since 2018. As a leader, Sport'Aide offers initiatives that promote safe, healthy environments for Quebec athletes and other sport community stakeholders at both elite and recreational levels. We provide counselling, support and referral services to everyone who has witnessed or been a victim of physical, sexual or psychological violence. We also advise organizations in the sports, education, municipal and athletic recreation sectors. We do this by developing, perfecting and implementing education and awareness tools and activities.

Two weeks ago, as we were preparing to testify before this committee, we felt it was important to share the main conclusion we've drawn in the five years we've been promoting safe, healthy sport: our athletes' well-being has been sacrificed because of a blinding, money-driven obsession with results. Consequently, stakeholders have failed to take action and have sometimes even protected perpetrators. In short, as such incidents become more common and normalized, we see them as increasingly alarming and, frankly, discouraging.

Nevertheless, we decided to change the focus of our remarks following the recent public statement by Minister St‑Onge, which made it clear we weren't alone in being aware of and concerned about this twofold problem. The minister's desire to drive a culture change by reforming our sport system, establishing a governance code and a registry of sanctions and investing in prevention is consistent with Sport'Aide's approach.

So today we're going to focus on a few recommendations to bring about real change in Canadian sport. The magnitude of this change calls for pragmatism and collective action. We are heartened by this collective awakening and by the fact that some nations have already achieved this goal in both sport and education.

Topping the list is Norway, proof positive that well-being, enjoyment and success can indeed coexist. Launched in 1988, the Norwegian reform prioritized development and the joy of sport. It changed Norway's sport culture and turned it into the most successful nation in history at the Winter Olympic Games.

With respect to preventing violence, the issue we are discussing today, Finland has mobilized 90% of its schools to reduce violence by more than 50%.

Inspired by these successes, Sport'Aide is here today to talk about its comprehensive, positive, sustainable and accountable approach.

Our approach is comprehensive, because this societal change requires commitment on the part of all stakeholders. To achieve results, we have to set up a structure that will bring about change at all levels, from young to old and, as we say back home, from Timbit to elite. Although some measures implemented at the national level are very valid, it is difficult to align them with provincial and local bodies without getting private sport involved.

Our approach is positive, because proven approaches focus on changing beliefs, attitudes and behaviours. Approaches based solely on repression and control, like those suggested last Thursday, have major limitations. That's why Sport'Aide already promotes an approach that prioritizes developing life skills, together with partners such as the Académie de baseball du Canada in Trois-Rivières, the Institut national du sport du Québec in Montreal, and the Montreal Canadiens.

Our approach is sustainable, because our actions must be part of everyday life if they are to last. This means investing in resources whose sole responsibility is to effect this change in federations and clubs. Let's be realistic: at this point, our organizations don't have the means to facilitate this kind of process. Investing in facilities is all well and good, but the time has come to invest in the people who bring these facilities to life. Let's remember that every dollar invested in an approach that promotes life skills yields a return to society of $11.

Our approach is accountable, because results-obsessed blindness is extremely problematic when it alone guides our actions and behaviours. Although last week's announcement on governance is a step in the right direction, we need to make sure accountability is central to the values system that dictates the course of action for Canada's sport system as a whole, thereby ensuring that at least as much attention is paid to athletes' well-being as to their performance. Unfortunately, because existing measures aren't properly evaluated, too many organizations think it's fine to just check the boxes.

Fortunately, things can change. We know that getting this societal undertaking off the ground requires collective effort, genuine will, and concrete, lasting action. I'll conclude with the following six recommendations: create a committee that represents stakeholders across Canadian sport; establish a structure that ensures effective interorganizational communication; base prevention efforts on developing life skills; increase and optimize funding for sport and make it more equitable for all; scientifically assess the impact of this culture change; and conduct an independent national inquiry.

Ladies and gentlemen, the game has begun, but it is far from over. That's why I'll end with this question: What legacy do we want to leave?

[The Chair, Liberal, Hedy Fry]

Thank you very much.

Now we're going to the question and answer component. The first round is six minutes. The six minutes includes a question and the answer.

We will begin with the Conservatives, for six minutes, with Kevin Waugh.

Kevin, you have six minutes.

[Kevin Waugh, Conservative, Saskatoon—Grasswood, SK]

Thank you, Madam Chair.

Welcome, everyone. It's nice to see everyone in person for a change.

Mr. Luke, thank you for your comments. In terms of reliance on government funding, OTP, as you know, got $7 million from the federal government in 2022. When you are being funded by the Government of Canada, how can you be that independent?

[Jeremy Luke]

There are ways to maintain independence, I would suggest, that go beyond looking only at funding. There are other measures, such as the governance of an organization, and the Canadian Centre for Ethics in Sport was established as an independent organization. It was a recommendation of the Dubin inquiry. Its board is made up of 12 individuals who are independent from both sport and government, and it's expert-based and non-representative.

We are also subject to audits by a global regulator, the World Anti-Doping Agency, to ensure that the work we are doing is independent from government.

Last, operational independence from an anti-doping perspective is a requirement within the World Anti-Doping Code.

I would offer those as some suggestions on how to maintain independence while at the same time receiving government funds.

[Kevin Waugh, Conservative, Saskatoon—Grasswood, SK]

The Dubin inquiry certainly was timely for the drug abuse and PEDs issues that we've seen athletes in that era come through, not only in this country but others.

I'm just going to pose a question to you because of my private member's bill on single-event sports betting. This has had a major influence, not only in this country, but in the world. In the last week we've seen the baseball coach of Alabama fired. We've seen suspicions of gambling for the Iowa football team.

Have you received any additional funds to make sure that we are so-called “safe sport” in gambling in this country? Have you received any since Bill C-218 was passed in the House of Commons?

[Jeremy Luke]

Not in any significant way. There have not been additional resources in a significant way to address the issue of competition manipulation in Canada, and I would stress to you, as a committee, that competition manipulation, which is an intentional effort to manipulate either the part of or the outcome of a competition, is a safe sport issue. It is often linked to organized crime and can cause harm to athletes. It's something that should be seriously considered as part of this discussion, and hopefully in years to come we'll be able to indicate that there is funding available to deal with that issue.

[Kevin Waugh, Conservative, Saskatoon—Grasswood, SK]

Would you advocate through the federal government for more funding? This is a new “want”, if you want to say, in the world, where not only Canada but several other countries are doing this now. With this, you do see some red flags. I've just pointed out two in the United States in the last week, and I'm sure there are some in Canada that we don't know about.

How are you, as an organization, going to look at this in the near future?

[Jeremy Luke]

There are absolutely red flags. What we've learned internationally is that with gambling in sport comes the risk of competition manipulation as a safety issue. In Canada we've been trying to advance these issues through a national symposium that was held in 2019. There will be a second version of that in two weeks' time in Toronto, and we've advocated for the federal government to ratify the Macolin Convention, which is a Council of Europe convention. It's the only international law that deals specifically with competition manipulation, and it sets out a framework for governments, provincial regulators and betting operators to co-operate to investigate these issues and to protect the safety of athletes who are subject to this type of activity.

Those, again, are some efforts that we've undertaken and tried to move forward.

[Kevin Waugh, Conservative, Saskatoon—Grasswood, SK]

Thank you, Mr. Luke.

I'll go to Ms. Merklinger.

Welcome. I'm a big fan of Own the Podium. In saying that, I was a little disturbed that there was funding to Canada Soccer, and to Gymnastics Canada and Hockey Canada, when we know there have been abuses in the past.

Can you speak to that?

[Anne Merklinger]

Certainly, the three examples you've provided have all come to our attention. In all three instances, we have put funding conditions in place to make sure the sport organizations address the shortfalls that have come to light.

[Kevin Waugh, Conservative, Saskatoon—Grasswood, SK]

So, playground to podium.... You know, a lot of people have taken shots at Own the Podium. What are your thoughts on that? For safe sport...many groups have sat in the same chair you're sitting in today and do not believe in Own the Podium.

[Anne Merklinger]

Like everyone involved in the sport system, I'm horrified by the stories that we've heard over the last many months.

OTP was founded at the request of athletes who complained that the sport system was underfunded and they weren't receiving the necessary support that other nations were providing to their athletes. These were barriers for them in achieving their goals.

OTP was given a mandate from Sport Canada, the Canadian Olympic Committee and the Canadian Paralympic Committee to help Canadian athletes have everything they need in order to achieve their goals. It was never intended to put medals over anyone's well-being. The person has to come first in all instances.

[Kevin Waugh, Conservative, Saskatoon—Grasswood, SK]

I have only a few seconds left...or maybe I have no seconds.

Thank you.

[The Chair, Liberal, Hedy Fry]

You've run out of time, Kevin. Thank you.

I'm going to go to the Liberals and Tim Louis.

You have six minutes, please.

[Tim Louis, Liberal, Kitchener—Conestoga, ON]

Thank you, Madam Chair, and thank you to all the witnesses. We appreciate your being there.

To continue Mr. Waugh's line of questioning, I will address Ms. Merklinger from Own the Podium.

You mentioned two things. They were leading edge technical support and then investments.

Can you explain what the threshold is and how you get involved with a sports organization? What criteria are met?

[Anne Merklinger]

We are essentially a technical agency. We have a team of what we would call sport technical experts, who provide guidance to all Olympic and Paralympic sports on a number of different elements, including the quality of their coaching, their daily training environment, the competition environment, sport medicine, sport science support, and safe sport and wellness. On a number of very specific technical factors, our team works with the sport organization to identify the gaps and identify areas where they can improve.

[Tim Louis, Liberal, Kitchener—Conestoga, ON]

Okay.

Mr. Luke said in his opening statement that we need to support the behaviours we want. That can be a bit subjective. How do you handle subjective criteria like supporting behaviours we want?

Is it just technical, or is there [Inaudible—Editor] behaviour?

[Anne Merklinger]

There are a number of different approaches we've introduced over the last few years. We are doing culture assessments and providing sport organizations with areas in which they can improve their high-performance culture. We are requiring every sport now to have a fulsome wellness plan to make sure the health, wellness and psychological safety of every athlete in the program is protected. We also work with them to share best practices from one sport to another.

We're really in the trenches with the sport organizations, being able to witness first-hand where there are opportunities for improvement.

[Tim Louis, Liberal, Kitchener—Conestoga, ON]

Ms. Merklinger, I'm not sure how recent this is, but are you starting to see data? Are you starting to see any positive outcomes? If not, when are you expecting to see that?

[Anne Merklinger]

We've already seen that the introduction of a mandatory wellness framework has been a game-changer. We are now able to ensure that there are adequate financial supports to the national sport organizations to focus on this area. We assess the sports in a very fulsome manner at least twice annually, in addition to being in the daily training environment on a very regular basis.