Did you know that a partner doesn’t need to resort to physical violence to create a toxic environment in a relationship? Some behaviors can be devastating even if they leave no physical marks.
“He monitors my text messages.”
“He threatened to take the kids if I left him.”
“He controls how much money I can spend every month.”
These behaviors are examples of a type of abuse known as coercive control. Between 60% and 80% of women seeking help for domestic violence have experienced coercive control[1].
According to the Standing Committee on Justice and Human Rights, coercive control encompasses various controlling behaviors between intimate partners and family members with the goal of “trapping” victims and eliminating their sense of freedom in a relationship. Examples include surveillance, financial control, emotional manipulation, isolation, threats, exploitation of a child, humiliation, interrogation, and gaslighting[2].
The term “coercive control” is relatively new to the public and the legal field. In 2021, the concept of coercive control was added to the definition of family violence in section 2 of the Divorce Act[3], which includes a non-exhaustive list of behaviors that may constitute “coercive control”[4].
The challenge of incorporating this concept into domestic violence legislation lies in the difficulty of proving and demonstrating coercive control in a judicial context, despite its significant psychological consequences, such as depression and post-traumatic stress disorder[5].
Addressing coercive control highlights a current limitation in the legal framework surrounding domestic violence. It is essential to examine how the law attempts to address this issue and the extent to which it recognizes and penalizes such behavior.
Legislation in force
There are currently few laws in Canada that allow punishment for coercive control behaviors, because the current state of the law does not tackle the concept in its whole.
In the matter of family law, remedies are limited to cases involving separation and/or its consequences. Upon separation, the Divorce Act includes coercive control in section 16(4), which states that during divorce proceedings, the court must “consider certain factors in assessing the effects of family violence on the child’s best interests, one of which is coercive behavior toward a family member”[6].
This section allows judges to consider the effects of coercive control behaviors when making decisions related to a child’s best interests, such as custody or parental authority. Thus, a partner’s coercive behavior can impact their rights to custody or contact with their child.
This law targets “family violence” broadly, in order to include any violence perpetrated by one family member against another. This includes domestic violence within intimate relationships. This distinction is crucial, as the Divorce Act only considers the effects of domestic violence when it occurs within the family framework[7].
In the matter of criminal law, the Criminal Code does not specifically target coercive control. However, certain behaviours can be encompassed in other offenses:[8]
- Section 139(3): Obstruction of justice: This provision penalizes, among other actions, using threats to dissuade someone from testifying.
- Section 264: Criminal harassment: This provision addresses acts that cause someone to fear for their safety or the safety of others, such as repeated communication, surveillance, or threats.
- Section 264.1: Uttering threats: This provision sanctions threats of death, bodily harm, damage to property, or harm to an animal.
- Section 430: Mischief: This provision penalizes acts such as destroying or rendering property dangerous, useless, inoperative, or ineffective.
Therefore, in the absence of evidence of coercive control within an intimate relationship, these behaviors, when considered individually, can condemned through other means.
Judicial Recognition of Coercive Control
Integration into Directive VIO-1 on Domestic Violence
Prosecutors in Quebec are bound by Directive VIO-1 on Domestic Violence, which outlines how crimes committed in the context of domestic violence should be handled.
According to this directive, prosecutors must:
- Treat cases as a priority and meet with the victim promptly after charges are filed to expedite the process.
- Prioritize the interests of the victim and their loved ones in all decisions.
- Recommend the seizure and prohibition of weapons, ammunition, and explosives.
- Suggest sentences that reflect the gravity of the offense.
- Avoid recommending conditional or unconditional discharges unless subject to specific conditions[9].
In June 2023, the definition of domestic violence in this directive was expanded to include coercive control, requiring this behavior to be considered when granting provisional release. It serves as an aggravating factor, imposing additional conditions to ensure the safety of the victim and their children[10].
Creation of a Specialized Court
The Act to create a court specialized in sexual violence and domestic violence (2021) implemented a pilot project across several judicial districts. It aims to restore victims’ trust in the judicial system and provide access to psychosocial and legal support. Victims of coercive control, included under domestic violence, can benefit from this court[11].
Act to amend the Criminal Code and the Judges Act (violence against an intimate partner)
In May 2023, amendments to the Criminal Code and Judges Act came into force. Known as “Keira’s Law,” these amendments call for training on domestic violence and coercive control in intimate and family relationships for judges. Judges are now required to consider coercive control when issuing release orders, such as imposing electronic monitoring devices to ensure the victim’s safety[12].
These changes also mandate ongoing training on family and domestic violence, including coercive control[13].
Bill C-332: Act to amend the Criminal Code (Controlling or Coercive Conduct)
This bill proposes to introduce a new offense to the Criminal Code to specifically criminalize coercive control. By criminalizing this behavior, the law aims to protect victims and their children from coercive control in contexts of domestic, family, sexual, psychological, economic, and verbal violence[14].
Moreover, coercive control would now be defined under the law as “a behavior that includes threatening to use violence against a partner, their child, or their pet, as well as attempting to control their finances and movements”[15].
The proposed legislation would amend section 264.01 of the Criminal Code to include the exercise of coercive control over a partner as a criminal act when committing one or more of the following acts: the use, attempt, or threat of violence; coercion into a sexual activity; or causing fear for their safety or that of another person[16].
Once enacted, individuals found guilty of coercive control could face imprisonment for up to 10 years or a summary conviction. This change would allow victims to have a direct criminal legal recourse for such behaviors[17].
The bill is currently under Senate review, which may propose amendments before its potential enactment[18].
Impacts of Criminalization
- Deterrence – Criminalizing coercive control could discourage perpetrators from engaging in such behaviors, helping to break the cycle of violence and protect more victims[19].
- Recognition of Condemnable Behavior – By defining coercive control as a criminal offense, it would become identifiable and punishable in its own right[20].
- Prevention – Victims could benefit from early intervention to prevent escalating violence.
It is essential for the public, stakeholders, and decision-makers to identify, address, and penalize coercive control behaviors effectively.
EVERYONE HAS A ROLE TO PLAY!
Additional Resources
- Legal Clinic: Provides legal information and legal information consultations with lawyers. Call 514-866-9941 ext. 293 or use our form
- Rebâtir: Consultation, information, and advice from female lawyers, see here
- Psychosocial Resources:
- SOS Domestic Violence: Provides services such as reception, information, awareness, and referrals for victims of current or past domestic violence, post-separation violence, and their loved ones.
- CALACS: Feminist organizations across Quebec supporting victims of sexual assault and their loved ones.
- Federation of Shelters for Women Victims of Domestic Violence : Find a shelter.
Important notes:
The information provided in this public legal education article is intended to provide a general understanding of the subject matter, does not constitute specific legal advice, and should not be construed as such. The above article represents the state of the law as of December 6, 2024.
As each situation is unique, we strongly recommend that you consult a lawyer for personalized legal advice tailored to your specific situation. We accept no responsibility for decisions made based on information contained in this article without prior consultation with a legal professional.
Article written by Mathilde Bernard and Emily Dutremble for Pro Bono Students of Canada
Verified by Olivia Carmelina Argento and Louise Thomas, coordinator of the YWCA Legal Information Clinic.
References
[1] Regroupement des maisons pour femmes victimes de violence conjugale, Comprendre le contrôle coercitif, 2022, p.4, https://maisons-femmes.qc.ca/wp-content/uploads/2022/10/Comprendre-le-controle-coercitif-version-longue.pdf
[2] ulie Couture, Le projet de loi C-332: Criminaliser le contrôle coercitif, Couture Avocats, 13 juin 2024, https://coutureetassocies.com/controle-coercitif/
; Brigitte Noel et Judith Plamondon, Dans les coulisses d’une formation sur le contrôle coercitif, Radio-Canada, 4 octobre 2024, https://ici.radio-canada.ca/info/long-format/2109544/formation-controle-coercitif-police
[3] Loi sur le divorce, L.R.C. 1985, c. 3, (2e suppl.), art. 2.
[4] Brigitte Noel et Judith Plamondon, Dans les coulisses d’une formation sur le contrôle coercitif, Radio-Canada, 4 octobre 2024, https://ici.radio-canada.ca/info/long-format/2109544/formation-controle-coercitif-police
[5] Julie Couture, Le projet de loi C-332: Criminaliser le contrôle coercitif, Couture Avocats, 13 juin 2024, https://coutureetassocies.com/controle-coercitif/
[6] Loi sur le divorce, L.R.C. 1985, c. 3, (2e suppl.), art. 16(4); Brigitte Noel et Judith Plamondon, Dans les coulisses d’une formation sur le contrôle coercitif, Radio-Canada, 4 octobre 2024, https://ici.radio-canada.ca/info/long-format/2109544/formation-controle-coercitif-police
[7] Fédération des travailleurs et travailleuses du Québec, La violence conjugale et les milieux de travail, https://ftq.qc.ca/violence-conjugale/#1683043144994-3f04764a-b48a; Éducaloi, Qu’est-ce que la violence conjugale?, https://educaloi.qc.ca/capsules/la-violence-conjugale/
[8] Controlecoercitif.ca, Criminaliser le contrôle coercitif, https://controlecoercitif.ca/fr/bibliotheque-de-contenus/criminaliser-le-controle-coercitif
[9] Directeur des poursuites criminelles et pénales, VIO-1 M Violence conjugale, révisée, 27 décembre 2023, https://cdn-contenu.quebec.ca/cdn-contenu/adm/org/dpcp/PDF/directives/DIR_VIO-1_DPCP.pdf
[10] Controlecoercitif.ca, Criminaliser le contrôle coercitif, https://controlecoercitif.ca/fr/bibliotheque-de-contenus/criminaliser-le-controle-coercitif
[11] Gouvernement du Québec, À propos du tribunal spécialisé, 26 février 2024, https://www.quebec.ca/justice-et-etat-civil/systeme-judiciaire/processus-judiciaire/tribunal-specialise-violence-sexuelle-violence-conjugale/a-propos
[12] Loi modifiant le Code criminel et la Loi sur les juges (violence contre un partenaire intime), L.C. 2023, c. 7
[13] Pierre Dalphond, Troisième lecture du projet de loi C-233, Loi modifiant le Code criminel et la Loi sur les juges (violence contre un partenaire intime, 16 février 2023, https://theprogressives.ca/fr/au-senat/discours/troisieme-lecture-du-projet-de-loi-c-233-loi-modifiant-le-code-criminel-et-la-loi-sur-les-juges-violence-contre-un-partenaire-intime/
[14] Julie Couture, Le projet de loi C-332: Criminaliser le contrôle coercitif, Couture Avocats, 13 juin 2024, https://coutureetassocies.com/controle-coercitif/
[15] La Presse Canadienne, Un projet de loi du NPD en route vers le Sénat, 12 juin 2024, https://www.lapresse.ca/actualites/politique/2024-06-12/criminalisation-du-controle-coercitif/un-projet-de-loi-du-npd-en-route-vers-le-senat.php
[16] Pierre Dalphond, Troisième lecture du projet de loi C-233, Loi modifiant le Code criminel et la Loi sur les juges (violence contre un partenaire intime), 16 février 2023, https://theprogressives.ca/fr/au-senat/discours/troisieme-lecture-du-projet-de-loi-c-233-loi-modifiant-le-code-criminel-et-la-loi-sur-les-juges-violence-contre-un-partenaire-intime/;
Loi modifiant le Code criminel (contrôle coercitif d’un partenaire intime), projet de loi nº C-332, (Débat en 3e lecture – 12 juin 2024), 1ère session, 44ème légis. Can.
[17] https://theprogressives.ca/fr/au-senat/discours/troisieme-lecture-du-projet-de-loi-c-233-loi-modifiant-le-code-criminel-et-la-loi-sur-les-juges-violence-contre-un-partenaire-intime/; Cormier Simard avocats droit criminel, L’infraction punissable par procédure sommaire: définition, https://www.avocatcriminel.ca/blogue/linfraction-punissable-sur-declaration-de-culpabilite-par-procedure-sommaire/
[18] Pierre Dalphond, Troisième lecture du projet de loi C-233, Loi modifiant le Code criminel et la Loi sur les juges (violence contre un partenaire intime, 16 février 2023, https://theprogressives.ca/fr/au-senat/discours/troisieme-lecture-du-projet-de-loi-c-233-loi-modifiant-le-code-criminel-et-la-loi-sur-les-juges-violence-contre-un-partenaire-intime/
[19] Pierre Dalphond, Troisième lecture du projet de loi C-233, Loi modifiant le Code criminel et la Loi sur les juges (violence contre un partenaire intime, 16 février 2023, https://theprogressives.ca/fr/au-senat/discours/troisieme-lecture-du-projet-de-loi-c-233-loi-modifiant-le-code-criminel-et-la-loi-sur-les-juges-violence-contre-un-partenaire-intime/
[20] Julie Couture, Le projet de loi C-332: Criminaliser le contrôle coercitif, Couture Avocats, 13 juin 2024, https://coutureetassocies.com/controle-coercitif/; Lisa Ha, Survol du contrôle coercitif et du droit pénal, Gouvernement du Canada, 13 mai 2024, https://justice.canada.ca/fra/pr-rp/jp-cj/victim/rr17-rd17/p4.html