Canada was , in relation to the shortcomings of the temporary foreign worker program.
Author
Samuel Ragot
PhD Candidate – Candidat au doctorat, McGill University
However, this was not the Special Rapporteur’s only criticism. The also drew his attention.
As a researcher on issues related to the financial security and employment of persons with disabilities, and as someone who works in the field of public policy, I would like to shed some light on a controversial practice that is still widespread in Canada: sheltered work programs.
What are sheltered work programs?
Relatively unknown to the general public, sheltered work programs are a throughout North America. Unlike institutionalization, which has been in relative decline, sheltered work programs are still thriving, despite repeated calls to end them .
Sheltered work programs are as programs in which:
- individuals with a disability (particularly those with an intellectual disability) are brought together, without being mixed with people who do not have a disability;
- people provide a form of work without being paid, or they receive a stipend (a few dollars a day);
- different labour laws and standards do not apply, including minimum wage standards.
Historically, the primary aim of these programs was . The reasoning was that if these people were made to perform repetitive tasks in a non-competitive environment where they were “protected” from the rest of society, they would be able to develop work skills and eventually enter the regular job market.
However, far from fostering inclusion in the workplace, the on-the-job training that starts out as temporary often becomes permanent. This raises ethical, political and social questions about the practice itself.
Programs used across Canada
, the Institute for Research and Development on Inclusion and Society outlined the situation regarding sheltered work programs in Canada. All the provinces studied (Ontario, British Columbia, Nova Scotia, Québec and the Northwest Territories) had sheltered work programs in which people provided work without receiving fair compensation.
Worse still, in many cases the , or even decades. Far from being a temporary measure, sheltered work programs have become both a source of funding and a form of respite for families faced with a cruel shortage of services.
It is very difficult, if not impossible, to know exactly how many persons with an intellectual disability participate in sheltered work programs in Canada (statistics are hard to find, or simply non-existent). However, since Québec publishes up to date financial and demographic data, it is possible to study the case of this province.
The case of Québec
Québec has divided its employability programs for people with disabilities between the Ministère de l’Emploi et de la Solidarité sociale (Ministry of employment and social solidarity, MESS) and the Ministère de la Santé et des Services sociaux (Ministry of health and social services, MSSS). In theory, the MSSS looks after people with disabilities deemed to be “further away from the labour market,” while the MESS looks after people who are more job-ready.
However, in reality, what community organizations in the field are reporting and is that a significant number of people who should be using MESS services end up in sheltered work programs, instead. amply demonstrates this situation.
Ultimately, Quebec’s Ministry of health and social services indirectly and significantly acts as a central driver of the province’s disability employment strategy for individuals with intellectual disabilities via sheltered work programs.
Between 2013-2014 and 2022-2023, no less than $187 million of public funds have been invested in these programs.
Another reason that may explain the prevalence of sheltered work programs in Québec is the fact that recipients of the Social Solidarity Program .
The fact that the social assistance cheque is reduced dollar for dollar after this limit is, itself, often cited as a justification for not paying people who participate in sheltered work programs.
Possible avenues for the future of sheltered work programs in Canada
Although sheltered work programs can sometimes help reduce isolation and provide respite to parents, several organizations are calling for better oversight of sheltered work programs.
A first step would be to have , to ensure that these programs truly are meeting a person’s needs with respect to bettering their social and professional skills.
In addition, to guarantee that all persons with disabilities enjoy the same rights as the rest of the population in all situations, including in employment.
As well, over time, governments should used for sheltered work programs toward inclusive hiring programs () and stimulating activities for adults with disabilities across Canada. Community organizations that provide respite for families and create these spaces to socialize and learn should also receive fair funding, so as not to generate more pressure .
Other measures are crucial, such as ensuring that social assistance programs allow recipients to work, even if only part-time. The new Basic Income Program that came into force in Québec in 2023 is a good example of positive change in this area, as it . Other provinces, such as and , have also started to make the rules of their programs more flexible, but there is still a long way to go.
Another important point is to ensure that there is a real, planned transition between school and working life for young adults with disabilities. Provinces that have worked on this, such as New Brunswick, . And although Québec has , the program is still limited to “guides” whose implementation is largely left to the goodwill of school principals, notably and clear obligations.
Canada must respect its international obligations
The situation is such that a growing number of organizations in Canada (including and People First of Canada, the two largest organizations representing people with intellectual disabilities in the country) are describing the participation of people with intellectual disabilities in sheltered work programs as
According to the various human rights organizations, Canada is therefore in breach of its international obligations. The explicitly prohibits the exploitation of people with disabilities (article 16), and instead promotes the right to employment and work on an equal basis with other workers (article 27).
It is high time that the term “work” was no longer synonymous with “exploitation” for persons with intellectual disabilities across the country.
Samuel Ragot is a Social Work PhD Candidate at McGill University and works as a Senior Policy Analyst at the Quebec Intellectual Disability Society.
