THE SUBCOMMITTEE ON VETERANS AFFAIRS
EVIDENCE
OTTAWA, Wednesday, April 29, 2026
The Subcommittee on Veterans Affairs met with videoconference this day at 12 p.m. [ET] to examine and report on issues relating to Veterans Affairs, including services and benefits provided, commemorative activities, and the continuing implementation of the Veterans Well-being Act.
Senator Dawn Anderson (Chair) in the chair.
[English]
The Chair: I’m Dawn Anderson, senator from the Northwest Territories and chair of the subcommittee. I’m joined today by my fellow subcommittee members, whom I welcome to introduce themselves.
Senator Ince: Good morning, all. My name is Tony Ince, senator from Nova Scotia.
Senator Patterson: I’m Rebecca Patterson, senator from Ontario.
Senator White: Judy White, senator from Newfoundland and Labrador.
Senator MacAdam: Jane MacAdam, senator from Prince Edward Island.
The Chair: Today, we meet to continue our work on the topic of veterans’ homelessness. We have the pleasure of welcoming two witnesses today, both appearing by video conference. I extend our warm welcome to Holly Delver, Program Coordinator for NiGiNan Housing Ventures, and Chad Wagner, Provincial Executive Director, Royal Canadian Legion Saskatchewan Command. Thank you both for joining us today.
We will begin by inviting you to provide your opening remarks, to be followed by questions from our members. I remind you that you each have five minutes for your opening statement. We will begin today with Ms. Holly Delver. Welcome. Please proceed when you are ready.
Holly Delver, Program Coordinator, NiGiNan Housing Ventures: [Indigenous language spoken]
Good morning, everybody. My name is Holly Delver. I come to you from Edmonton, Alberta. It’s a beautiful day today. I just want to thank you for the opportunity to speak.
I’d like to begin by expressing gratitude for the funding and support provided to Indigenous veterans and the organizations that work alongside them. These investments are meaningful. They allow us to create spaces where veterans can reconnect with culture, community and identity in ways that are essential to their well-being.
Today, I will briefly speak on three key areas: issues affecting Indigenous veterans, services and supports currently being provided and the importance of culturally grounded approaches aligned with the Veterans Well-being Act.
To start with issues affecting Indigenous veterans, they have a long, proud history of service. However, many continue to face unique challenges after returning home. These barriers include the following: accessing services due to geography, awareness or systemic gaps; a lack of culturally appropriate programming within mainstream veteran services; ongoing impacts of intergenerational trauma and colonial systems; as well as feelings of isolation and disconnection from both the military and community.
Another challenge we are currently facing is engagement. It has been difficult to identify and connect with Indigenous veterans and encourage participation. This reflects both trust barriers and the need for more outreach that is currently relevant and community-driven.
Another one is related to the programs and supports being offered. In response, we have developed a range of culturally grounded programs that prioritize connection, healing and community. We like to do our men’s warrior circles, which are held twice weekly. They create a safe space for sharing experiences, building trust and mutual support. We also provide access to ceremonies and cultural practices, including pipe ceremonies, weekly sweats, participation in sun dances and other cultural gatherings.
Cultural skill building and knowledge sharing include opportunities such as drum making, rattle making, song sharing and teachings from Knowledge Holders.
We like to offer peer support and community connection. This creates networks of like-minded individuals who understand both military and Indigenous experiences.
Art therapy is important for us as well, with creative expression supporting healing through culturally relevant artistic practices.
A big one for us also is land-based and holistic wellness activities — being able to get out on the land. It includes activities such as hunting, learning about their culture and understanding the values that accompany that. This allows individuals to reconnect with the land, their identity and our people’s traditional ways of knowing. These programs are not just services; they’re pathways back to identity, belonging and purpose.
I want to express my appreciation again for the funding and commitment shown so far. These supports make a real difference. They’re improving outreach and engagement, expanding culturally appropriate services and ensuring that Indigenous veterans feel seen, respected and supported. By investing in culturally grounded care, we are not only supporting these veterans; we are honouring their service in a way that reflects who they are.
Thank you for your time. I welcome any and all questions.
The Chair: Thank you, Ms. Delver.
Next we will hear from Mr. Chad Wagner. The floor is yours.
Chad Wagner, Provincial Executive Director, Royal Canadian Legion Saskatchewan Command: Honourable senators, staff and colleagues, thank you for the opportunity to appear today to discuss the important issue of veterans’ homelessness.
My name is Chad Wagner, and I am here representing the Royal Canadian Legion Saskatchewan Command.
I am not a veteran, but I have worked alongside them for over 10 years. I have seen some of the most vulnerable come through our office. We provide them with the best possible support without judgment and with a primary focus of care.
The Saskatchewan Command and the many other recipients of this grant all have one common goal, which is to provide the necessary assistance to eradicate homelessness in the veteran community. It is important that we collaborate and work together, as the issue is not solved by any one person or group.
When we meet a client, our first priority is to establish a safe and proper place to stay, ensure they have nourishment and also provide an effective method of communication. After that, we look for long-term sustainable housing and funding. From there, we work towards physical and mental wellness supports.
We are fortunate as an organization because we have other programs available through our own funding. The Veteran Homelessness Program, or VHP, funding complements all the other programs that we have, and without it, we would not be as impactful in the community as we currently are. Homelessness among veterans is a complex issue exacerbated by the unique challenges of transitioning from military to civilian life.
The other significant barrier is unresolved trauma. It is also likely the epicentre of true healing. This goes for anyone, not just veterans. There are many modalities of treatment and supports out there. What is critical is the wraparound supports and the ability to adapt when relapse occurs.
Some programs through Veterans Affairs Canada, or VAC, will become unavailable to a veteran because they seem fine, have completed the programs, have become better and cross off all the boxes in the checklist. But life has a way of creeping in, and relapse is inevitable. Unfortunately, some of those same programs are difficult to get back into once they have been removed from them.
To help prevent homelessness, those entrusted to care for veterans after service need to keep it simple and remove barriers to success. We need to listen to those veterans who are negatively impacted and find simple solutions to a common cause. We need to fast-track claims for those who are most in need and simplify the application process. It is important to speed up decision making and ultimately permit veterans to seek the care that they want from the provider they want.
Thank you for your time this morning. I will accept any questions you may have.
The Chair: Thank you, Mr. Wagner.
We will now proceed to questions. In order to maximize the number of questions, I ask that you keep your questions succinct and that you identify which witness your question is directed to.
I’d like to offer the first question to our deputy chair, Senator Ince.
Senator Ince: Thank you, all. This is so important.
My first question is this: What role do cultural connections, ceremony and peer support play in housing stability? How should governments think about funding and evaluating those kinds of supports within homelessness and veterans programs? This question is for Ms. Delver.
Ms. Delver: Thank you for your question.
I’m here representing NiGiNan Housing Ventures, which is an Indigenous-led permanent supportive housing organization in Edmonton, Alberta. One of our approaches is having stability, creating that community and that belonging within homes and supportive units so that people aren’t isolated or kept alone and have a community. They organically and naturally create this community within the home by having trusted people they can turn to, whether it’s a neighbour down the hall or an Elder who is working in the building. With this, we believe that having the stabilization of housing, food and connection to culture and ceremonies are things along the lines of blood memory. It’s within them, and it’s something that they find themselves going back to in an organic way. Again, it’s not forced; it happens the way it’s supposed to happen. That’s kind of how our people work. We just remove the barriers and create access.
Senator Ince: Let me ask the second part of that.
You had mentioned a lack of trust and a lack of connecting with any of the services. Would you suggest that this goes a long way in helping to build that trust with individuals?
Ms. Delver: Yes, 100%. We actually home in on relationship building here in our organization. When people are hired with us, that’s one of the systems that we train them on. It starts with something as small as having coffee with the person and getting to know them, not coming from a place of authority. We see them as people. We treat them as such, and things move and flow in a way that’s helpful rather than harmful.
Senator Ince: Thank you.
Senator Patterson: This will be a question for both of you, but I’m going to start with Ms. Delver. It’s about looking at numbers and then the support you’re getting from Veterans Affairs Canada.
We know that many folks who are experiencing homelessness or living rough are more likely to not be in any recognized shelters, so it becomes very hard to identify them. I think you pointed that out. What numbers of people coming for your service are you seeing? That’s the first question.
Here’s the second. I’m very impressed that you have housing options that are culturally relevant and appropriate. Are you receiving any funding from Veterans Affairs Canada or other sources to help support you in that endeavour?
Ms. Delver: Thank you for your question.
Yes, we are. We have a four-year commitment with Veterans Affairs Canada, and I think we are currently in year two. We had a slow start to begin with, and after doing some trial runs with different programming and such, we’ve now realized that asking veterans to come and share their trauma doesn’t work. Again, we build relationships, and then we slowly tinker with stuff they choose to speak about. We create access, and when they’re in a safe, supported space, things come out about how they feel and if they need to heal. We’re on the other end to support them in any way, shape or form.
For the numbers, we started off very slow, and now we’ve actually expanded our building. We’re housing a few hundred folks at this time. We do have veterans within our organization. However, we’ve extended it to community members, so I share with a lot of the shelter services here in the city. Their participation is not always consistent. However, we do have people coming in at all different healing stages of their journey. They are able to come together and know that they are supported.
Senator Patterson: Thank you. Do you run any housing of your own? Have you constructed any properties that you are responsible for? Or do you use the community and the other sites that you’ve already mentioned?
Ms. Delver: With NiGiNan Housing Ventures specifically, we have currently four sites up and running, and they have been for some time. We are currently expanding to do a couple hundred more supportive units. It is under way. It depends whether a person needs persons with developmental disabilities, or PDD, support, supportive housing or addictions and mental health support. Everybody is under one big umbrella. Then, individually, we work with them and assess where the supports are needed because not everybody is on the same journey.
We are creating more housing within NiGiNan Housing Ventures. It’s under way.
Senator Patterson: Thank you. I have a quick follow-up, and then, Mr. Wagner, I’ll get to you in the next round. I think that’s fair.
It is absolutely exceptional what you’re accomplishing. Thank you for everything you’re doing. One of the areas that made me feel vaguely alarmed was the fact that it’s only a four-year funding timeline. What are your thoughts about after those four years? It is a wonderful project, but it’s a long-term one. Have you had any thoughts about the likelihood of getting continued funding from Veterans Affairs Canada, or do you need to seek other sources to ensure it’s sustainable?
Ms. Delver: I believe we are pushing to continue this because it’s something that has not been so open in the community. It’s very sparse. We are definitely looking to expand and continue. Again, we’re always looking for support, and it happens how it needs to happen. I guess we’ll see when the time comes if we’re able to continue with support from Veterans Affairs Canada.
Senator Patterson: Thank you.
Senator MacAdam: Thank you to the witnesses for being here.
My question is for Mr. Wagner. You mentioned in your opening remarks about the need for simple solutions and to simplify the process for veterans to access services. I’m wondering if you could speak a bit to that and if you have any specific suggestions that would help to simplify the process for veterans to access their services.
Mr. Wagner: Thank you for the question.
I think the biggest concern we hear is that the paperwork can be long and drawn out. It’s often hard to find out where it’s supposed to go. There are different providers that are able to help veterans with their paperwork, and some are able to send it off on their behalf. But sometimes technical glitches get in the way, and that delays it.
In terms of simplification, I think it really comes down to listening to what veterans’ needs are and offering them the opportunity to seek their own solutions for their own needs. Every individual is different. Often, they’re being told, “No, you can’t use that service provider because it doesn’t meet the threshold carried out within Veterans Affairs Canada.” It’s a pretty common theme we hear. There are some modalities out there that are just not eligible. That would be a big plus.
I think the other side of it is empowering the veteran service agents, VSAs, in VAC to make some of these decisions in terms of what programs or funding are available for those in need.
Senator MacAdam: With regard to transitional housing — I think it’s transitional housing that you provide — how long can veterans access that transitional housing? How long can they stay in that housing? Do you follow the veterans after they leave the housing? What support services are provided when they’re in the housing? I’m thinking about addictions services and things like that. Could you elaborate?
Mr. Wagner: We don’t have housing ourselves, so we make use of the different housing authorities around the province. That’s where we try to get them into. Often, it’s also them finding a home on their own. It’s encouraging them to make their own decisions in terms of where they live and what community they want to be in. It has to be within their means as well, so we coach them on living within their means.
Short-term housing might be as simple as a hotel until we can find them an apartment, which could be between a week to two. That funding comes through the VHP or often our own funding through the Poppy Fund.
Outside of that, we offer peer support programs. We have service dog programs, wellness programs and benevolent emergency supports. We’ll support the veterans with really anything that can help them, whether that’s debt management or understanding things as simple as how to apply for a job. We’ll support them in that.
Senator MacAdam: Thank you.
Senator Ince: My question is for Mr. Wagner.
First of all, I’m going to really commend you. Let me just share that, on the East Coast, most of our Legions don’t do the vast work that you’re doing. They don’t have the connections. As a matter of fact, many of our Legions in the East are shrinking. Many of them are closing. There’s mismanagement of funds and a whole host of things going on. I’m wondering if you could share with us how you do what you do and do it so well.
Mr. Wagner: When I was brought on board, my first goal was to change the direction of where we were going and put a real emphasis on solutions for veterans.
We really have two different businesses that we run, and it can be a challenge at times. We’re dealing with volunteers at all different levels, which is probably the biggest challenge. There’s a disconnect in that. Most of our members, though, are family members of veterans. We have seen some growth over the last couple of years in terms of our membership. Here, in Saskatchewan, we haven’t seen a branch close in some time.
It really comes down to the leadership. We have a good council that has been forthright in making sure veterans are placed first. I’ll be honest: Sometimes we don’t get it right, but we always strive to make it right. We created different programs by listening to veterans. That includes peer support. Our wellness program is probably the biggest change we’ve made over the last few years. It’s really a catch-all to look at how we can support veterans.
When I mentioned them getting to choose their own method of treatment, why aren’t we saying “yes” instead of “no” all the time? That “delay, deny and wait until they die” mentality really needs to shift from all directions.
Senator Ince: Thank you so much. I’d like to put you in touch with a couple of people in Nova Scotia who are trying to do similar work to what you’re doing. You might be able to give them some tips.
Mr. Wagner: Sure. I probably already know them, too.
Senator Ince: Thank you.
Senator Patterson: As that was part of my question for Mr. Wagner, I’m going to pick out some of the comments you’ve made. When we’re talking about those living rough or the homeless, they are the most vulnerable in Canadian society; add “veteran” to that, and it takes on a whole new level. There was a point about being able to seek the treatment or support that they need, on their terms, which may not be covered by VAC. Now, VAC uses a formula for the evidence-based support that they pay for; it kind of has that insurance ring to it.
However, especially with this most vulnerable population, it’s important that we’re able to share a message with VAC that maybe we need to look at this differently. Ms. Delver, looking at Indigenous populations — I know a lot of that is not covered.
We’ll start with Mr. Wagner first. If you were to concisely state your recommendation, which I think you’ve already started to do, for Veterans Affairs Canada to truly get to people who are the most vulnerable and try to get them into a position where they can start being responsive to programs and go from temporary housing into permanent housing, what would that advice be in terms of funded access to care modalities?
Mr. Wagner: Thank you for the question.
There’s a word you said that caught my ear: insurance. That’s a word that’s thrown around by the veteran community in that they see it as an insurance company. That needs to change immediately. It cannot operate like an insurance company; it has to be operated like a care facility.
Also, start listening to these individuals. It’s their body, their choice. For them to not check every single box in a decision-making package to be funded — there might be one or two items in there that may not be conducive to what they’re willing to pay, but have a look at it and just say “yes” once in a while instead of saying “no” all the time.
Senator Patterson: Thank you.
Ms. Delver: Yes, I agree with Mr. Wagner. My message would be similar, honestly.
You can have a program and somebody who needs the program, but then it doesn’t work out. It’s not that easy or simple. There’s a lot behind it, especially when it comes to homelessness, mental health and addictions.
Our model would be to get to know the people and truly care about who they are, what they’re doing and where they’re going — being able to remove the barriers and support them through that.
It seems like Mr. Wagner is more on the accountability side of it, whereas, for us, we have full, wraparound, 24-7 supports for our people within the organization because mental health and addictions are that bad. We have to start from square one. We allow the 90-day stabilization period, which is our time to get to know the people. Once the 90 days are up, you’re able to sit down with them, be real with them and challenge them to recovery or health and wellness. We’re not meant to be stagnant here. We want to make sure our supports are doing something for the greater good of their well-being.
Thank you.
Senator Patterson: Thank you.
I have a last piece of follow-up because I know we have time. How many of the veterans that you are seeing are Royal Canadian Mounted Police, or RCMP? I’ll ask both of you that. Do you see Indigenous RCMP veterans?
Ms. Delver: I have not come across RCMP vets here in Edmonton.
Mr. Wagner: We do see quite a few. I don’t know the exact number, but probably half of the veterans we see are Indigenous. I’m going to say that maybe 5% end up being RCMP members. That’s probably a pretty good ballpark.
Senator Patterson: Thank you.
Senator McNair: Thank you to both of you for the work you’re doing for veterans on an ongoing basis.
Listening to what you’re saying, first and foremost, it’s all about respecting the individuals we’re dealing with. Mr. Wagner, you said to simply say “yes” once in a while instead of always saying “no.” That’s a mindset change. It sounds easy, and it should be, but it isn’t always.
What are the lessons learned or the best practices for housing veterans that you would want to recommend to us with a view to recommendations we could be making to make a better dent in the situation we’re dealing with? I’ll start with Mr. Wagner.
Mr. Wagner: Sure. Thanks.
I think the biggest sense is that this is a community, and it doesn’t have to be an individual-based solution all the time. Each individual does have their own solution, but to really attack this means starting to build affordable housing for these individuals. Maybe it would look as though it is a community just for veterans, because they have similar life experiences. But it doesn’t only need to be for veterans; first responders can also be included.
Have a facility where people with similar life experiences can be housed in the same place to have access to the various modalities. It doesn’t have to be encompassed into one, as long as there is someone there, boots on the ground, who can direct them in the right direction and who knows what provider provides the best solution for their current needs.
Senator McNair: Thank you.
Ms. Delver: Thank you for your question. I’d have to agree with Mr. Wagner: It is access to affordable housing. Right now, I believe the homeless count in Edmonton is over 6,000. There is not nearly enough affordable supportive housing for individuals, let alone veterans. There’s a high need for housing, 100%.
Within NiGiNan Housing Ventures, we feel that people aren’t able to focus on anything when they’re in survival mode, so housing is the first step.
Senator McNair: Thank you.
Senator MacAdam: Throughout this discussion, we’ve been hearing about a number of challenges that you’re both having, but I’m wondering if there’s anything that you can point to in terms of the services you’re providing and the programs you have. Is there anything that’s working particularly well that you can share that maybe we can take into consideration in the work that we’re doing here at the committee?
Mr. Wagner: One of the things we’ve been working on is understanding trauma better and trying to find different modalities to heal trauma. Most of the modalities in terms of psychology, or even mental or physical sports, deal with the mind and the body, but they don’t really reach into the soul. To what Ms. Delver was saying earlier about the cultural aspect, that’s really getting into the soul. Whether it is understanding religion or cultural aspects — whatever it is — it is about reacquainting these individuals with something that is a mindset and that makes them a human and not a number. I think that’s probably the biggest challenge. We really have to treat them like humans and provide them with different modalities that work. Really, the healing begins at the root of it, which is the soul, which is who somebody really is.
Ms. Delver: Again, I have to agree with Mr. Wagner. Some of the things that have been standing out would be creating the safe space, so having the space to go to rather than it being out in the public, or just being able to have a space, such as a ceremonial space. Each of our buildings has a ceremonial room. It’s right in the centre when you walk in, and that’s kind of the key focus with Indigenous People, let alone Indigenous veterans. It’s something that you grow up with. Whether you’re new to it as an adult, it’s something that is within you from birth. So it’s just having access to that space and that community and continuing that with consistency.
Senator MacAdam: Thank you.
The Chair: Thank you for that.
I’ll ask the next question. If you had an opportunity to tell Parliament or Canada what still needs to change for veterans in this country, what would you want them to clearly understand?
Ms. Delver: I’ll go ahead and answer. I would just like to have people understand them as people. Whether they are going through recovery or an active addiction or struggling with mental health, they are still people. They are still somebody’s brother, somebody’s son and somebody’s dad, you know? It’s just seeing them as who they are and what they need, not us telling them what they need, and allowing them to have a listening ear so we can focus on their core issues and, again, heal from the root and allow them to flourish in their own ways.
The Chair: Thank you.
Mr. Wagner: Well, it starts off with better communication. Some of the changes that have come down are not very clearly communicated, and the numbers don’t add up. That adds to more distrust and that sort of thing.
Another thing that needs to be focused on is understanding that relapse does occur. When somebody is removed from a program, life has a way of getting back at you and will bite you on the behind if you’re not paying attention and if you don’t stay on top of it with wraparound supports. Sometimes these programs aren’t designed to allow somebody to come back into them. So they need to take into consideration that relapse does happen. After all, they are humans, and we need to treat them like humans.
The Chair: Thank you.
This brings us to the end of today’s meeting. I would like to extend our sincere thanks to Ms. Delver and Mr. Wagner for taking the time to be with us today.
Our next meeting will take place on Wednesday, May 6, at 12 p.m. in the same room. I would like to wish everyone a good afternoon.
(The committee adjourned.)