2025-26 Horizontal initiative: Implementing the Federal framework to address the legacy of residential schools
Table of contents
General information
Lead department: Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC)
Federal partner organizations: Indigenous Services Canada (ISC), Library and Archives Canada (LAC), Canadian Heritage (PCH), Parks Canada Agency (PC), Royal Canadian Mounted Police (RCMP), and the Department of Justice (DOJ)
Start date: 2022
End date: 2027
Description of the horizontal initiative: In 2006, in response to decades of litigation and action by survivors seeking justice for their experiences at residential schools, the Indian Residential Schools Settlement Agreement (IRSSA) was approved with the aim of bringing a fair and lasting resolution to the legacy of residential schools. Created under the IRSSA, the Truth and Reconciliation Commission (TRC) was mandated to document the history of residential schools. In its final report and 94 Calls to Action (CTA), the TRC outlined the far-reaching impacts of the residential schools system and identified the significant work remaining to address its ongoing legacy. Since 2015, with Canada’s legal obligations under the IRSSA nearing completion, the Government of Canada has made implementation of the TRC’s CTAs a central pillar of its reconciliation agenda, committing to fully implement the CTAs in partnership with Indigenous communities, governments, provinces, territories, and other partners.
In 2019, implementation of CTAs 72 and 73 (National Residential School Memorial Register and National Online Cemetery Register), was led by Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC) in partnership with the National Centre for Truth and Reconciliation (NCTR). In 2021, CIRNAC also launched the "Residential Schools Missing Children – Community Support Funding" initiative for the implementation of CTAs 74-76. This initiative provided funding to Indigenous communities to undertake community-led initiatives to locate, document, and memorialize burial sites associated with former residential schools, and honour families’ wishes to bring children’s remains home.
In August 2021, following the location of probable unmarked burial sites associated with former residential schools in British Columbia, Saskatchewan, and Manitoba, the Government of Canada announced additional investments to support Indigenous community-led work. This includes:
- work surrounding burial sites
- commemoration activities
- the construction of a national residential schools monument to honour survivors and children who did not return home
- the provision of essential mental health services
- cultural and emotional services to support healing from intergenerational trauma
- the rehabilitation of existing residential school buildings on and off-reserve
The destructive legacy created by residential schools is complex. Addressing the intergenerational impacts requires whole-of-government, coordinated action across federal departments and agencies, as well as co-operative relationships with Indigenous communities and across all levels of government. To this end, Budget 2022 announced additional investments to support the implementation of the Federal Framework to Address the Legacy of Residential Schools, which includes initiatives to address the ongoing impacts of the residential schools system and commemorate its history and legacy.
This Horizontal Initiative has been anchored around 4 themes with the lead departments and agencies, as follows: (1) addressing missing children and burial information (CIRNAC with linkages to the work of the Special Interlocutor, as set out below); (2) commemoration and education (Parks Canada and Canadian Heritage); (3) supporting communities and survivors (Indigenous Services Canada); and (4) sustained, streamlined support for reconciliation initiatives (CIRNAC, Library and Archives Canada, and Royal Canadian Mounted Police).
In June 2022, the appointment of Kimberly Murray as the Independent Special Interlocutor for Missing Children and Unmarked Graves and Burial Sites (Special Interlocutor) was part of the whole-of-government approach to address the legacy of residential schools. On October 29, 2024, the Special Interlocutor presented her final recommendations concurrently to the Minister of Justice and to First Nations, Inuit and Métis survivors, families, communities and leadership, for a new federal legal framework to identify, protect and preserve unmarked graves and burial sites associated with former residential schools. The recommendations she made will inform the actions taken by the Government of Canada towards the implementation of a new federal legal framework and new needed initiatives and measures over and above those currently presented in this horizontal initiative. These new potential actions would be integrated into theme A of the Initiative: "Addressing Missing Children and Burial Information". Budget 2022 identified funding to support the work of the Special Interlocutor and her office. For more information regarding the Special Interlocutor’s mandate, engagement activities and reports, please consult her website at Home | Office of the Special Interlocutor (osi-bis.ca).
Governance structures: The Horizontal Initiative Results Framework (HIRF) to Address the Legacy of Residential Schools (LRS) will be reported in the Departmental Plan and Departmental Results Report of the lead department (CIRNAC) and will be implemented through a horizontal governance structure, including the Assistant Deputy Minister Oversight Committee (ADMC), which includes representation from 7 core departments and agencies (CIRNAC, Indigenous Services Canada, Royal Canadian Mounted Police, Parks Canada Agency, Department of Justice, Canadian Heritage, and Library and Archives Canada). The ADMC is supported by a Director General Steering Committee (DGSC) and is responsible for the overall governance and coordination of the Horizontal Initiative. It will ensure horizontal results monitoring, reporting, and assessment, including the collection of consistent data. The governance structure is supported by resources within CIRNAC’s Resolution and Partnerships Sector.
CIRNAC, through the leadership of the LRS Secretariat, will continue to be the lead department and convener of working-level groups, as well as these committees. All partner departments will continue their participation in establishing the governance structure and the financial parameters for the Horizontal Initiative, provide a complete list to CIRNAC of their activities associated with addressing the legacy of residential schools, and provide information on relevant departmental activities as required by the ADMC to implement their respective activities connected to the Horizontal Initiative. Going forward, interdepartmental results working group(s), alongside the ADMC and DGSC, will work collaboratively to ensure:
- the development of results and resource frameworks
- data collection and consolidation
- monitoring of performance indicators
- addressing unforeseen issues and course corrections that arise during the life of these initiatives
- developing communication strategies
| Federal organizations | Total federal funding allocated (start to end date) | Total federal planned spending to date | Total federal actual spending to date |
|---|---|---|---|
| CIRNAC | $390,663,282 | $247,749,535 | $235,698,441 |
| ISC | $857,757,020 | $227,600,000 | $227,345,000 |
| LAC | $25,000,000 ($22.5 million excluding SSC and PSPC) | $9,337,386 excluding SSC and PSPC | $7,874,896 excluding SSC and PSPC |
| PCH | $38,117,808 | $21,067,804 | $20,109,921 |
| PC | $25,000,000 | $15,000,000 | $13,485,429 |
| RCMP | $5,089,545 | $2,035,818 | $720,517 |
Date of last renewal of the horizontal initiative: Not applicable
Additional federal funding received after the last renewal: Not applicable
Fiscal year of planned completion of next evaluation: 2027–28 Evaluation of Residential Schools Legacy (CIRNAC only)
Planning highlights for 2025–26:
CIRNAC
CIRNAC will convene 2 ADMC and 2 DGSC meetings in 2025-26 to support horizontal results monitoring, reporting, and assessment. The department will contine to be the lead department and convene working-level groups. CIRNAC will review the Special Interlocutor’s Final Report to inform next steps regarding, among others, the approach to a national strategy for the identification and repatriation of human remains. The department will also continue to implement the Federal framework to address the ongoing legacy of residential schools, including providing funding to communities for initiatives to locate, identify, and memorialize burial sites and repatriate childrens' remains through the Residential Schools Missing Children - Community Support Fund. In addition, CIRNAC will develop a whole-of-government approach to the identification, management, and disclosure of Indian residential school-related documents to the National Centre for Truth and Reconciliation. Finally, the the department will develop options to address missing children and burial information associated with non-residential school federal institutions. Other tasks associated with this initiaitve include:- Coordinating implementation of the Federal Framework as a Horizontal Initiative, including reporting
- Fulfilling corporate and strategic policy, planning and reporting requirements
- Managing data collection and consolidation
- Preserving corporate/policy institutional knowledge
- Monitoring performance indicators
- Addressing unforeseen issues and course corrections that arise during the life of these initiatives
- Developing communication strategies
- Supporting information requests from other federal departments
ISC
Mental wellness investments renewed in Budget 2024 will continue to advance Canada’s commitment to implement the United Nations Declaration on the Rights of Indigenous People Action Plan and the Truth and Reconciliation Commission Calls to Action. These investments include funding to support access to community-based and trauma-informed cultural supports (i.e., Elders, and Traditional Healers) and emotional supports (i.e., community-based health workers, and peer supports) for Indigenous people impacted by trauma and intergenerational trauma, including survivors, intergenerational survivors and First Nations, Inuit and Métis people impacted by the legacies of the Indian Residential School System. Investments have also supported continued access to 24/7 crisis line services related to Indian Residential Schools.
PCH
Canadian Heritage will continue the development of the Indian Residential Schools National Monument. The survivor-led Steering Committee will continue to oversee the project, and with the support of the Royal Architectural Institute of Canada and its Indigenous Task Force, their work will be directed towards engagement and outreach, as well as the development and launch of the design selection process.
RCMP
The RCMP will continue:- to build trusting relationships with Indigenous Peoples, communities and organizations across Canada through partnerships, engagement and recruitment initiatives aimed at increasing Indigenous representation in its workforce
- to support our long-term commitment to reconciliation, through finalizing a National Reconciliation Pathway (or Strategic Plan) to set a more integrated approach to reconciliation through a national lens. It is expected to be used across the RCMP as a tool and resource to advance reconciliation initiatives and strategies, to identify gaps and leverage opportunities
- to provide enhanced specialized services (for example, offering best practices, comparative and case analysis and investigational advice) to missing persons and unidentified remains investigations
Contact information
Kristi Carin, Director General
Settlement Agreement and Childhood Claims Branch
Crown-Indigenous Relations and Northern Affairs Canada
200 Rue Montcalm, Gatineau, Québec, J8Y 3B5
Phone: 873-455-2798
Kristi.Carin@rcaanc-cirnac.gc.ca
Horizontal initiative framework: departmental funding by theme
| Name of theme | Theme A Addressing missing children and burial information |
Theme B Commemoration and education |
Theme C Supporting communities and survivors |
Theme D Sustained and streamlined support for reconciliation initiatives |
Internal services |
|---|---|---|---|---|---|
| Theme outcomes | Residential school survivors, families and communities have access to information on the death and burial locations of their relatives | Indigenous peoples’ heritage in Canada is protected for future generations Canadians have access to Indigenous commemorations that contribute to reconciliation |
Indigenous Peoples are mentally well | Residential school Survivors and communities have access to complete archival records on the history of residential schools Access to Library and Archives Canada’s collection is increased Improved relationships with and outcomes for Indigenous people |
Not applicable |
| CIRNAC | $313.4 million over 5 years (2022 to 2027, top-up) Continued Implementation of CTAs 72-76 $1.2 million over 4 years (2022 to 2026, new program) Missing Children and Burial Information Associated with Non-IRSSA Federal Institutions Included in Indigenous Childhood Claims Litigation |
Not applicable | Not applicable | $71.0 million over 5 years (2022 to 2027, top-up) Support to NCTR operations $1.5 million for 2022–23 (new program) Documents identification and sharing |
$3.6 million |
| ISC | Not applicable | Not applicable | $224.3 million over 2 years (2022 to 2024, top-up) Renewal of Expanded Trauma-Informed Health and Cultural Supports $623.3 million over 2 years (2024 to 2026) Mental Wellness renewal |
Not applicable | $6.9 million |
| LAC | Not applicable | Not applicable | Not applicable | $25 million over 4 years (2022 to 2026, top-up) Records Digitization |
Included in the amount identified under Theme D ($2.6 million) |
| PC | Not applicable | $25 million over 3 years (2022 to 2025, top-up) Commemorating the history and legacy of residential schools |
Not applicable | Not applicable | $1.7 million |
| RCMP | Not applicable | Not applicable | Not applicable | $5.1 million over 5 years (2022 to 2027, top-up) Culturally-Appropriate Policing Responses |
Included in the amount identified under Theme D |
| PCH | Not applicable | $18,150,233 over 3 years, starting in 2021–22 ($8,533,848 as part of ongoing funding and top-up of $9,616,385) Commemorate Canada: Commemorating the history and legacy of residential schools $19,967,575 for Indian Residential Schools National Monument (First Nations, Métis, and Inuit) |
Not applicable | Not applicable | $1.0 million |
Planning information
Horizontal initiative overview
Name of horizontal initiative: Implementing the Federal Framework to Address the Legacy of Residential Schools
Horizontal initiative shared outcome: Progress is made in addressing the legacy of residential schools and reconciling with survivors and their families
Total federal funding allocated: $1,334,745,727
2025–26 planned spending: $385,066,982
| Performance indicator | Target | Date to achieve target |
|---|---|---|
| Percentage of Truth and Reconciliation Commission Calls to Action under federal or shared jurisdiction related to the legacy of residential schools that are completedTable note a | 66% | March 31, 2027 |
Theme A details
Name of theme: Addressing missing children and burial information
Total federal theme funding allocated: $314,526,112
2025–26 federal theme planned spending: $61,968,214
| Theme outcomes | Theme performance indicators | Theme targets | Date to achieve theme targets |
|---|---|---|---|
| Residential school survivors, families and communities have access to information on the death and burial locations of their relatives | Percentage of former residential schools for which investigation work has been conductedTable note a | 86% | March 31, 2026 |
| Percentage of residential school survivors and families that have received requested materials from the National Centre for Truth and Reconciliation (NCTR) archives | To be determinedTable note b | To be determinedTable note b | |
Theme A horizontal initiative activities
Crown-Indigenous Relations and Northern Affairs Canada
Link to the department's program inventory: Residential Schools Legacy Program
Horizontal initiative activity: Continued implementation of Calls to Action (CTAs) 72-76
Total federal funding allocated to the activity: $313,352,561
2025–26 planned spending for the activity: $61,715,330
| 2025–26 horizontal initiative activity expected results | 2025–26 horizontal initiative activity performance indicators | 2025–26 horizontal initiative activity targets | Date to achieve horizontal initiative activity targets |
|---|---|---|---|
| Partners and communities have timely access to information to plan and implement CTAs 72-76 initiatives | Percentage of requests for program information responded to by the department within two (2) business days of receipt | 85% | March 31, 2026 |
| Percentage of funding requests for which engagement between the department and the partner/community is underway within thirty (30) calendar days of receipt | 85% | March 31, 2026 | |
| Percentage of received documents that have been reviewed and classified by the NCTR | To be determinedTable note a | To be determinedTable note a | |
| Partners and communities successfully secure funding to plan and implement CTAs 72-76 initiatives | Percentage of eligible funding requests from eligible partners / communities approved under the Residential Schools Legacy Contribution Program | 60% | March 31, 2026 |
| Partners and communities implement initiatives to locate, document, and commemorate / memorialize missing children and burial sites associated with former residential schools | Percentage of planned activities funded through the Residential Schools Legacy Contribution Program that have been implemented | 75% | March 31, 2026 |
Link to the department's program inventory: Other Claims
Horizontal initiative activity: Missing children and burial information associated with non-IRSSA federal institutions included in Indigenous childhood claims litigation
Total federal funding allocated to the horizontal initiative activity since the last renewal: $1,173,551 over 4 years
2025–26 planned spending for the activity: $252,884
| 2025–26 horizontal initiative activity expected results | 2025–26 horizontal initiative activity performance indicators | 2025–26 horizontal initiative activity targets | Date to achieve horizontal initiative activity targets |
|---|---|---|---|
| The unique historical contexts of childhood claims non-IRSSA (e.g. federally-operated day schools and Indian hospitals) and other federal institutions are considered in the development of options to address missing children and burial sites | Percentage of research projects completed to inform options to address missing children and burial sites in the context of childhood claims | 100% | March 31, 2026 |
| Percentage of discussions or negotiations with plaintiffs and their representatives conducted to inform options to address missing children and burial sites in the context of childhood claims | 100% | March 31, 2026 |
Theme B details
Name of theme: Commemoration and education
Total federal theme funding allocated: $63,117,808
2025–26 federal theme planned spending: $1,618,393
| Theme outcomes | Theme performance indicators | Theme targets | Date to achieve theme target |
|---|---|---|---|
| Indigenous Peoples’ heritage in Canada is protected for future generations | Percentage of new and revised designations of national historic sites, persons and events related to Indigenous history | Not applicableTable note a | Not applicableTable note a |
| Canadians have access to Indigenous commemorations that contribute to reconciliation | Percentage of respondents that report a positive outcome for commemoration activities related to residential schools and the National Day for Truth and Reconciliation | 75% | March 31, 2026 |
Theme B horizontal initiative activities
Canadian Heritage
Link to the department's program inventory: National Celebrations, Commemorations and Symbols
Horizontal initiative activity: Indian Residential Schools National Monument (First Nations, Inuit and Métis)
Total federal funding allocated to the activity: $19,967,575
2025–26 planned spending for the activity: $1,618,393
| 2025–26 horizontal initiative activity expected results | 2025–26 horizontal initiative activity performance indicators | 2025–26 horizontal initiative activity targets | Date to achieve horizontal initiative activity targets |
|---|---|---|---|
| Canada’s capital region features interpretive content, monuments, commemorations and public art that reflect Canadian identity, culture and values | Issuance of a certificate of final completion by the National Capital CommissionTable note a | Received certificate | Not applicableTable note b Implementation timelines for this project will depend on the work of the Steering Committee |
| Organization | Initiative activity | Total funding |
|---|---|---|
| Parks Canada | Commemorating the history and legacy of residential schoolsTable note a | $25,000,000 (2022-2025) |
| Canadian Heritage | Commemorate Canada: Commemorating the history and legacy of residential schoolsTable note b | $18,150,233 (2022-2024) |
Theme C details
Name of theme: Supporting communities and survivors
Total federal theme funding allocated: $854,457,020
2025–26 federal theme planned spending: $315,078,510
| Theme outcomes | Theme performance indicators | Theme targets | Date to achieve theme target |
|---|---|---|---|
| Indigenous Peoples are mentally well | Percentage of First Nations adults on reserve who reported "excellent" or "very good" mental health | 55% | March 31, 2028 |
| Percentage of Inuit adults living within Inuit Nunangat who reported "excellent" or "very good" mental health | 50% | March 31, 2028 | |
| Percentage of Métis adults who reported "excellent" or "very good" mental health | 58% | March 31, 2028 | |
| Percentage of First Nations off-reserve who reported "excellent" or "very good" mental health | 55% | March 31, 2028 |
Theme C horizontal initiative activities
Indigenous Services Canada
Link to the department's program inventory: Mental Wellness Program
Horizontal initiative activity: Renewal of expanded trauma-informed health and cultural supports
Total federal funding allocated to the activity: $224,300,000 over 2 years (2022-2024), $630,157,020 over 2 years (2024-2026)
2025–26 planned spending for the activity: $315,078,510
| 2025–26 horizontal initiative activity expected results | 2025–26 horizontal initiative activity performance indicators | 2025–26 horizontal initiative activity targets | Date to achieve horizontal initiative activity targets |
|---|---|---|---|
| Mental Wellness services and programs are accessible for Indigenous Peoples and communities | Number of interactions between clients of the trauma-informed Health and Cultural Support Programs and the cultural/emotional support workers | 1.2 million annual interactions | March 31, 2026 |
| Percentage of First Nations adults who have consulted a traditional healer in the past 12 months | 24% | March 31, 2026 |
Theme D details
Name of theme: Sustained and streamlined support for reconciliation initiatives
Total federal theme funding allocated: $102,644,787
2025–26 federal theme planned spending: $6,401,865
| Theme outcomes | Theme performance indicators | Theme targets | Date to achieve theme targets |
|---|---|---|---|
| Residential school survivors and communities have access to complete archival records on the history of residential schools | Percentage of federal departments and agencies that have completed a scoping of their Indian residential schools-related records | 90% | To be determinedTable note a |
| Access to Library and Archives Canada’s collection is increased | Number of pages related to Indian day schools digitized | Not applicableTable note b | Not applicableTable note b |
| Improved relationships with and outcomes for Indigenous people | Percentage of surveyed Canadians who self-identify as Indigenous and agree with the statement "I feel safer because of the Royal Canadian Mounted Police" | 50% | March 31, 2029 |
Theme D horizontal initiative activities
Crown-Indigenous Relations and Northern Affairs Canada
Link to the department's program inventory: Residential Schools Legacy Program
Horizontal initiative activity: Support to National Centre for Truth and Reconciliation operations
Total federal funding allocated to the activity: $71,011,242 over 5 years
2025–26 planned spending for the activity: $3,615,707
| 2025–26 horizontal initiative activity expected results | 2025–26 horizontal initiative activity performance indicators | 2025–26 horizontal initiative activity targets | Date to achieve horizontal initiative activity target |
|---|---|---|---|
| The National Centre for Truth and Reconciliation has enhanced capacity to provide ongoing research support to Indigenous families and communities | Percentage of National Centre for Truth and Reconciliation positions funded by CIRNAC that are fully staffed | 100% | March 31, 2026 |
Library and Archives Canada
Link to the department's program inventory: Acquisition and Processing of Government Records
Horizontal initiative activity: Records digitization
Total federal funding allocated to the horizontal initiative activity: $25,000,000 over 4 years ($22,530,790 excluding SSC and PSPC)
2025–26 planned spending for the horizontal initiative activity: $1,768,249 (excluding SSC and PSPC).
| 2025–26 horizontal initiative activity expected results | 2025–26 horizontal initiative activity performance indicators | 2025–26 horizontal initiative activity targets | Date to achieve horizontal initiative activity targets |
|---|---|---|---|
| Indian day schools' records are searchable for access with a culturally-competent description | Percentage of digitized records related to Indian day schools' system and its legacy with a culturally competent description | 100% | March 31, 2026 |
| Indigenous communities access their documentary heritage | Percentage of requests to access Indian day schools' records responded to within the statutory time (30 days) | 30% | March 31, 2026 |
Royal Canadian Mounted Police
Link to the department's program inventory:
- Specialized Policing Services
- Sensitive and Specialized Investigative Services
- Forensic Science and Identification Services
Horizontal initiative activity: Culturally-appropriate policing responses
Total federal funding allocated to the activity: $5,089,545 over 5 years
2025–26 planned spending for the activity: $1,017,909
| 2025–26 horizontal initiative activity expected results | 2025–26 horizontal initiative activity performance indicators | 2025–26 horizontal initiative activity targets | Date to achieve horizontal initiative activity targets |
|---|---|---|---|
| Increased availability of tools, training, systems and databases | Number and type of newly developed, co-developed and acquired tools, techniques and solutions for missing persons and unidentified remains investigations | 8 | March 31, 2026 |
| Improved timeliness of screening capabilitiesTable note a | Percentage of fingerprint-based criminal record check results for federal government employment requiring manual processing returned within 30 days | 90% | March 31, 2026 |
| Percentage of fingerprint-based criminal record check results for federal government employment not requiring manual processing returned within 3 days | 90% | March 31, 2026 | |
| Enhanced Royal Canadian Mounted Police capacity to provide specialized services | Percentage of partners and stakeholders who strongly agree or agree with the statement "I am satisfied with the assistance or investigational support provided by the Royal Canadian Mounted Police’s Sensitive and Specialized Investigative Services" | 80% | March 31, 2026 |
| Modern specialized services and technology support Canadians and law enforcement | Percentage of respondents who strongly agree or agree with the statement "The Royal Canadian Mounted Police places emphasis on providing quality service to the public" | 80% | March 31, 2026 |
| Organization | Initiative activity | Total funding |
|---|---|---|
| CIRNAC | Documents identification and sharingTable note a | $1,544,000 (2022-2023) |
| Themes | Total federal funding allocated | 2025–26 total federal planned spending |
|---|---|---|
| Theme A: Addressing missing children and burial information | 314,526,112 | 61,968,214 |
| Theme B: Commemoration and education | 63,117,808 | 1,618,393 |
| Theme C: Supporting communities and survivors | 854,457,020 | 315,078,510 |
| Theme D: Sustained and streamlined support for reconciliation initiatives | 102,644,787 | 6,401,865 |
| Total, all themes | 1,334,745,727 | 385,066,982 |