It is a long question, but I think you've hit on something very significant, which is that I think we would all like to see more programs available for victims.
The question is—I think Professor Waller pointed to this as well—how are you proposing to fund that? You point to something, which is the alternative that is set out in the legislation for those who can't afford it, our fine options programs, and they are not universally available. Some of the John Howard societies offer fine option programs; many of them don't.
You're not going to have an even uptake of options, other than the surcharge. You are leaving very vulnerable a great slew of people who will be automatically hit with a surcharge and will have no ability to be able to pay that off. There are mechanisms in the Criminal Code of Canada, such as subsection 787(2), which allow for incarceration of those who are unable to pay orders of a financial nature.
The likelihood that you are going to see people who are impoverished heading towards provincial jails is increased with this legislation, unless you make an amendment that allows judicial discretion to not impose the surcharge where it is pretty clear that the person cannot discharge the surcharge without financial hardship.