Rainbow Railroad Pre-Budget Submission
August 2025
Summary of Recommendations
As an international LGBTQI+ rights organization, Rainbow Railroad (RR) is witnessing a global anti-gender backlash that is eroding human rights frameworks and forcibly displacing LGBTQI+ persons around the world.1 Today, over 60 countries still criminalize same-sex intimacy, with 12 countries including the death penalty as punishment. Fourteen countries explicitly criminalize transgender people. Global forced displacement has also increased every year for the last 10 years, and right now, 1 in every 69 people globally is forcibly displaced 2
In this evolving global context, Rainbow Railroad supports at-risk LGBTQI+ persons to access pathways to safety. We provide emergency and livelihood assistance to individuals when they need help, we connect those who are internally displaced with local LGBTQI+ organizations providing protection in-place, and for the most urgent cases, we support in finding bespoke pathways to international refuge. Each year, we receive tens of thousands of requests for help from queer and trans individuals seeking urgent international protection In 2024, 13,402 people asked for our help In 2025, we are projected to receive over 20,000 requests for help
Canada has played a key role in protecting global LGBTQI+ human rights and forging new pathways to safety for LGBTQI+ refugees. However, as countries such as the United States cancel their international development 3 funding, it places global LGBTQI+ rights work at steep risk of losing ground on progress made to-date and emboldening a global campaign of regression. Canada’s leadership in fighting for LGBTQI+ rights around the world is more important than ever To hold the line on anti-gender backsliding and solidify Canada’s legacy as a global LGBTQI+ rights leader, Rainbow Railroad recommends the following:
1. Affirm Canada’s position as a world leader in international LGBTQI+ rights advancement by:
● Increasing funding for the LGBTQ2I International Assistance Program to $25 million per year, or 0.3% of the overall international development budget. Key programs under this fund include Rainbow Railroad’s groundbreaking Queer Forced Displacement Initiative (QFDI), a global multi-lateral network dedicated to developing protection and durable solutions for queer and trans refugees around the world
● Investing $1.37 billion over three years in the Global Fund to Fight AIDS, Malaria, and Tuberculosis.
● Establishing a new appointed position in government in the form of a Human Rights Ambassador to coordinate with like-minded countries on human rights, and advise senior Canadian officials
2 Continue leading international LGBTQI+ refugee resettlement by:
● Maintaining key implementation funding for Canada’s groundbreaking initiative for at-risk LGBTQI+ refugees, the Government-Assisted Refugee (GAR) partnership with Rainbow Railroad.
● Increasing key implementation funding for Canada’s flagship private sponsorship program for at-risk LGBTQI+ refugees, the Rainbow Refugee Assistance Partnership (RRAP) with Rainbow Refugee and the From Borders to Belonging (FB2B) coalition
● Sustaining key implementation funding for other dedicated complementary LGBTQI+ humanitarian pathways and public policies supporting at-risk LGBTQI+ refugees escaping unsafe countries.
3. Invest in domestic LGBTQI+ organizing and essential services that build resilience against a growing global anti-gender movement by:
● Continuing investments in the Community Capacity Fund, and earmark an additional $2 million per year for the next three budgets to ensure long-term endurance of the sector
● Funding health research with a $1 5 million investment into health research for 2SLGBTQI+ people, including for at-risk newcomer asylum seekers and refugees.
1 GATE Recognizing, Documenting, and Addressing Anti-Gender Opposition 2024 https://gate ngo/wp-content/uploads/2024/02/2024-GATE-Recognizing Documenting and Addressing Anti-Gender Opposition pdf
2 UNHCR Global Trends June 2024 https://wwwunhcrorg/global-trends
3 Government of Canada LGBTQI+ Refugees March 2025 https://wwwcanada ca/en/immigration-refugees-citizenship/services/refugees/about-refugee-system/2slgbtqi-plus html
Global Anti-Gender Backlash
In 2024, Rainbow Railroad received more than 13,000 requests for help from LGBTQI+ people around the world. This figure is a stark indicator of the growing need for safety among those facing state-sponsored violence, criminalization, and persecution simply because of who they are or who they love. Last year, we supported 5,916 individuals across our program areas.
In recent years, we have witnessed a steady rise in laws and policies that specifically target LGBTQI+ individuals, even as many countries have taken meaningful steps forward This hate is well-organized, well-funded, and being heavily resourced by organizations based in the U S and beyond We have seen this movement exemplified in 4 many different events worldwide including: the passing of the Anti-Homosexuality Act in Uganda, the Russian Supreme Court labelling the LGBTQI+ Movement as “Extremist”, Ghana passing the Family Values Act, Iraq criminalizing same-sex relationships under the guise of morality, and Trinidad and Tobago’s recent overturning of a landmark 2018 ruling that decriminalised consensual same-sex relations, reinstating penalties of up to 25 years in prison
These laws reflect a broader wave of state-sponsored repression driven by the global anti-gender movement The influence of anti-gender rhetoric, funding, and policy has produced a rising tide of legislative changes that undermine a broad spectrum of rights, contribute to democratic backsliding, and lead to increased instances of forced displacement. Around the world, attacking LGBTQI+ persons and dismantling their fundamental rights has become a part of the authoritarian playbook.5
At the same time, anti-asylum sentiment is growing, with notable backtracking by countries of asylum on refugee protection and resettlement In 2024, the EU signed their Pact on Migration and Asylum which allows for faster application processing and deportations. Further, the election of the new U.S. Administration has dramatically 6 accelerated global regression on LGBTQI+ and asylum rights. Within 24 hours of taking office, the President suspended the US Refugee Admissions Program (USRAP), and instructed federal agencies to recognize two sexes, fixed at conception. The State Department then slashed almost all foreign aid spending, halting critical services to refugees worldwide, and issued a stop-work order to all U S refugee resettlement agencies
LGBTQI+ people in criminalized transit and displacement contexts rely on asylum and third-country resettlement as life-saving protection. Safeguarding access to asylum is vital for LGBTQI+ asylum seekers for whom local integration or voluntary repatriation may be life-threatening. Despite this, last year, less than 5% of refugees in need of resettlement worldwide actually received it. These events are changing how the 7 international LGBTQI+ community must adapt and respond to threats to our rights, and at this moment, state allies with positive LGBTQI+ human rights track records are critical The federal budget presents a new opportunity for Canada to solidify its global leadership in the protection of LGBTQI+ asylum seekers and refugees
Addressing these challenges requires tailored solutions, including strategic investments to support the creation and sustainment of multi-stakeholder coordination forums to address LGBTQI+ refugees’ unique protection needs, state-level international human rights ambassadors, dedicated humanitarian resettlement pathways, and support for domestic integration upon arrival.
4 Global Philanthropy Project 2021–2022 Global Resources Report: Government & Philanthropic Support for Lesbian, Gay, Bisexual, Transgender, and Intersex Communities June 21, 2024 https://globalresourcesreport org/
5 UN Independent Expert on Sexual Orientation and Gender Identity (IE SOGI) Protection against violence and discrimination based on sexual orientation and gender identity in relation to the human rights to freedom of expression, peaceful assembly and association A/HRC/56/49 April 18, 2024 https://wwwohchrorg/en/documents/thematic-reports/ahrc5649-protection-against-violence-and-discrimination-based-sexual
6 International Rescue Committee What is the EU Pact on Migration and Asylum? July 23, 2024 https://wwwrescue org/eu/article/what-eu-pact-migration-and-asylum
7 UNHCR 2025 global refugee resettlement needs spike to almost 3 million June 4, 2024 wwwunhcrorg/news/press-releases/unhcr-2025-global-refugee-resettlement-needs-spike-almost-3-million
Affirm Canada’s position as a world leader in international LGBTQI+ rights advancement
The government can realize this commitment by:
● Increasing funding for the LGBTQ2I+ International Assistance Program to $25 million per year, or 0.3% of the overall international development budget. Key programs under this fund include Rainbow Railroad’s groundbreaking Queer Forced Displacement Initiative (QFDI), a global multi-lateral network dedicated to developing protection and durable solutions for queer and trans refugees around the world
● Investing $1.37 billion over three years in the Global Fund to Fight AIDS, Malaria, and Tuberculosis.
● Establishing a new appointed position in government in the form of a Human Rights Ambassador to coordinate with like-minded countries on human rights, and advise senior Canadian officials.
LGBTQ2I International Assistance Program
We were pleased to see commitments to increase funding for the LGBTQ2I International Assistance program (IAP) in the government’s party platform The IAP has been a groundbreaking contribution to the international LGBTQI+ rights movement, and through key partnerships with Canadian organizations, increased protection outcomes for at-risk LGBTQI+ persons around the world. One flagship program funded through the IAP is the Queer Forced Displacement Initiative (QFDI). The QFDI is a two-year project to establish an international multi-stakeholder network of refugees, civil society organizations, UN agencies, and allied governments dedicated to improving access to protection and developing durable solutions for LGBTQI+ forcibly displaced persons
LGBTQI+ people experience direct persecution in countries of origin, in transit and host communities. They face systemic barriers in accessing humanitarian assistance or safe pathways, and experience exclusion and discrimination within existing protection systems. In the face of these complex conditions, LGBTQI+ people 8 with lived experience, civil society organizations, international organizations and government actors from across the globe are generating creative strategies and solutions And yet, to date, there exists no sustained global institutional space to capture and share this critical collective expertise to strengthen local, regional and international responses. The QFDI bridges this critical gap and serves as a long-term institutional platform for generating protection solutions for LGBTQI+ communities in forced displacement. It will also be a platform for mobilizing urgent response efforts for crises affecting LGBTQI+ communities.9
After completing the initial roundtables, the global political landscape shifted dramatically Long-standing 10 networks of LGBTQI+ civil society organizations and human rights defenders were devastated by massive U S foreign aid funding cuts, with many forced to cut staff or close including key QFDI partners In this context, it is imperative to leverage the QFDI as a strategic tool to hold the global refugee protection system accountable and ensure it meaningfully includes LGBTQI+ people who have been systematically excluded. In this climate, Canadian funding through an enhanced commitment to the LGBTQ2I International Assistance Program will be vital to ensure the successful continuation of this important global initiative.
The Global Fund
Together, HIV, tuberculosis (TB), and malaria amount to 2.4 million deaths and billions of dollars in economic activity lost each year. The Global Fund to Fight AIDS, Tuberculosis, and Malaria plays a pivotal role in efforts 11 to end the world’s deadliest epidemics and has saved over 65 million lives since 2002. The success of the Global
8 United Nations Independent Expert on Sexual Orientation and Gender Identity Protection against violence and discrimination based on sexual orientation and gender identity in relation to forced displacement June 2025 https://docs un org/en/A/HRC/59/43
9 RR Queer Forced Displacement Initiative 2024 wwwrainbowrailroad org/QFDI
10 RR Queer Forced Displacement in Mexico 2025 https://wwwrainbowrailroad org/wp-content/uploads/2025/07/Summary-Findings-QFDI-Mexico-ENG pdf
11 The Global Fund 2025 https://wwwtheglobalfund org/en/
Fund’s upcoming eighth replenishment in 2025 will largely determine the world’s ability to achieve the 2030 target of eliminating AIDS, TB, and malaria The replenishment is an opportunity for global leaders to invest in a proven mechanism that improves health equity, strengthens health systems, bolsters economies, and promotes global stability. A fully funded eighth replenishment would save an additional 23 million lives and unlock US$323 billion in global economic returns over 2027-2029.
According to Rainbow Railroad’s proprietary data, we identified that for cisgender men and gender fluid individuals, HIV-positive status ranked in the top five health concerns of the individuals we served who disclosed health and welfare concerns For bisexual and queer individuals, living with poor physical health and disabilities were reported in the top five reported concerns. Opportunities like the Global Fund are vital to supporting 12 some of the most at-risk clients we serve, in contexts where access to medical services in transit may be especially scarce, and funding that targets LGBTQI+ communities through established AIDS relief networks may be the only way to reach them.
Canada has long supported the Global Fund, most recently with a historic $1 21 billion investment towards its seventh replenishment in 2022. We strongly urge the Government of Canada to build on its existing commitment and invest $1.37 billion over three years in the Global Fund to Fight AIDS, Tuberculosis and Malaria.
Canadian Human Rights Ambassador
Canada also has the opportunity to join other leading countries in human rights advancement with the appointment of a Human Rights Ambassador. This person would promote LGBTQI+ equality and human rights internationally and align Canada with other global leaders on international LGBTQI+ rights advancement. As more states are emboldened to enact novel criminalization of queer, trans, and intersex people, international human rights forums are losing ground on their ability to name and protect LGBTQI+ persons globally.
At the 2024 Commonwealth Heads of Government Meeting (CHOGM) of all 56 commonwealth nations, despite civil society’s urgent calls to hold states accountable for global human rights violations, state leaders selected Ghanaian Minister for Foreign Affairs, Shirley Ayorkor Botchwey, as the Secretary-General of the Commonwealth. World leaders effectively rewarded Ghana for introducing new legislation to criminalize LGBTQI+ advocacy earlier in 2024. This outcome is emblematic of the gap in global diplomacy and addressing the anti-LGBTQI+ backlash on the world stage Acknowledging LGBTQI+ people are protected under international human rights apparatus has also become untenable in certain international diplomatic spaces Words such as ‘sexual orientation’ ‘diversity’ and even definitions of the ‘family’ have become highly contested and their inclusion in shared global agreements is moving backwards. As global actors continue to remove 13 LGBTQI+ rights language and protection frameworks at the highest levels, international human rights champions that call out authoritarian attacks on LGBTQI+ persons on the world stage are vital.
Recently held analogous roles in Canada include the Special Envoy to Myanmar, the Special Envoy on Preserving Holocaust Remembrance and Combatting Antisemitism, and the Women, Peace and Security Ambassador, show that Human Rights Ambassadors work well when they both recognize civil society’s long term engagement and advocacy on particular human rights issues, and effectively leverage this experience for the purposes of transformative human rights gains. Other leading nations that currently or have previously had dedicated 14 LGBTIQ+ Ambassadors or analogous roles include Argentina, France, Italy, the United Kingdom, and the United States.
12 RR 2021 Annual Report: Understanding the State of Global LGBTQI+ Persecution June 2021 https://wwwrainbowrailroad org/2021-annual-report
13 Between 2016-2021, ILGA World found that the number of SOGIESC recommendations decreased in 7 of the 9 in UN Treaty Bodies (Human Rights Treaty Bodies ILGA World Database 2023 https://database ilga org/all-treaty-bodies )
14 Dignity Network Canada Briefing Report: A Canadian Special Envoy on International LGBTIQ+ Human Rights 2023 https://dignitynetwork ca/wp-content/uploads/Special-envoy-EN-single pdf
Canada is also in a unique position to champion LGBTQI+ rights globally On the world stage, Canada is a founding member of the Organization of the American States (OAS) LGBTI Core Group Canada also served as co-chair of the intergovernmental Equal Rights Coalition (ERC) from 2017 to 2019, and hosted the inaugural ERC Global Conference on LGBTI Human Rights and Inclusive Development. Canada is also a member of the UN LGBTI Core Group, a cross-regional group of UN member states, as well as a member of the Group of Friends in Geneva supporting the mandate of the United Nations Independent Expert on Sexual Orientation and Gender Identity (IE SOGI) The government has an opportunity to continue to play a leading role in global LGBTQI+ human rights advancement, and appointing this Ambassadorial position is a key way to do so
Continue leading international LGBTQI+ refugee resettlement
The government can realize this commitment by:
● Maintaining key implementation funding for Canada’s groundbreaking initiative for at-risk LGBTQI+ refugees, the Government-Assisted Refugee (GAR) partnership with Rainbow Railroad
● Increasing key implementation funding for Canada’s flagship private sponsorship program for at-risk LGBTQI+ refugees, the Rainbow Refugee Assistance Partnership (RRAP) with Rainbow Refugee and the From Borders to Belonging (FB2B) coalition.
● Sustaining key implementation funding for other dedicated complementary LGBTQI+ humanitarian pathways and public policies supporting at-risk LGBTQI+ refugees escaping unsafe countries.
Government Assisted Refugees (GARs) Partnership
A key part of Canada’s support for LGBTQI+ refugees has been possible through the groundbreaking Government-Assisted Refugee (GAR) partnership between the Government of Canada and Rainbow Railroad 15 This partnership allows Rainbow Railroad, in coalition with partners in From Borders to Belonging (FB2B), to refer up to 250 at-risk LGBTQI+ refugees for urgent resettlement in Canada. This partnership would not have been possible to execute without key programmatic funding support from Immigration, Refugees and Citizenship Canada (IRCC).
The Canadian government has lauded the success of the GAR partnerships around the world, from the UNHCR Global Refugee Forum in 2023, to as recently as the United Nations Human Rights Council in June 2025 Leveraging its leadership in various UN forums, Canada continues to play a critical role encouraging other states to explore humanitarian pathways for LGBTQI+ refugees through direct partnership with LGBTQI+ civil society The success of this partnership includes vital support for programmatic execution through close collaboration with IRCC. As the global anti-gender movement continues to spur anti-LGBTQI+ rights regressions around the world, the GAR partnership is lifesaving.
In 2024, RR built the internal infrastructure to implement this historic program, including a complete overhaul of our case intake, processing, and evaluation systems We developed robust frameworks and assessment tools to account for the specific needs of each individual who could qualify for this program, and prioritize access for the most at-risk The creation of comprehensive, queer-specific assessment tools marks a significant contribution to the humanitarian protection field. Sustained investment in the GAR partnership’s programmatic infrastructure will ensure the continued success of this program.
Rainbow Refugee Assistance Partnership (RRAP)
We were pleased to see commitments to expand resources for LGBTQI+ refugees to resettle in Canada in the government’s party platform. The Rainbow Refugee Assistance Partnership (RRAP) is Canada’s flagship program, carving a unique pathway to resettlement for LGBTQI+ refugees through private sponsorship The partnership between the Canadian government and Rainbow Refugee Society allows member organizations of
15 RR Major Announcement - GettingLGBTQI+ to Safety in Canada 2024 https://wwwrainbowrailroad org/the-latest/major-announcement-getting-lgbtqi-people-to-safety-in-canada
From Borders to Belonging, the coalition of LGBTQI+ refugee support organizations across Canada, to sponsor 16 up to 50 LGBTQI+ refugees in need of resettlement each year
Expanding the RRAP is an important step in maintaining Canada’s commitment to support LGBTQI+ refugees, and it must be accompanied by sustained investment in IRCC in order to support successful execution. Under current cuts, persons approved for resettlement to Canada through RRAP still wait up to three years for resettlement because of backlogs, and must endure in homophobic, biphobic and transphobic conditions where they risk facing persecution and violence, often where LGBTQI+ identity and expression are explicitly criminalized Further, the majority of this program is supported by small underfunded LGBTQI+ civil society organizations and volunteers across Canada, who take on the brunt of the cost-sharing agreement in order to support LGBTQI+ refugee newcomers to resettle in Canada. Investment in the work of domestic LGBTQI+ civil society driving this work is critical in maintaining these programs that continue to be lauded as an innovative and successful contribution in the international humanitarian landscape, and which continue to be adopted by states around the world
Complementary LGBTQI+ Humanitarian Pathways
The government has a distinct opportunity to expand on its global legacy supporting LGBTQI+ refugees by continuing to invest in complementary humanitarian pathways. During state-led anti-LGBTQI+ crackdowns and other crisis contexts, Canada has shown global leadership through partnership with Rainbow Railroad on public policies providing lifesaving humanitarian pathways and urgent resettlement. Flagship interventions include supporting LGBTQI+ persons to escape the Gay Purge in Chechnya in 2017, and the Taliban takeover in Afghanistan in 2023
As RR has witnessed a wave of states introduce novel criminalization regimes, such state-sponsored anti-LGBTQI+ crises will become more frequent. Flexible public policies are a lifeline when homophobic flare-ups lead to life and death persecution in an instant. Reliable investment in the programmatic infrastructure needed to execute these public policies will ensure the continued success of urgent humanitarian pathways in the future
The continued success of the RRAP, GAR, and other complementary humanitarian pathways for LGBTQI+ asylum seekers and refugees, requires sustained investment into their operation and in the LGBTQI+ civil society organizations who partner to execute them.
Invest in domestic LGBTQI+ organizing and essential services that build resilience against a growing global anti-gender movement
The Government can do this by:
● Continuing investments in the Community Capacity Fund, and earmark an additional $2 million per year for the next three budgets to ensure long-term endurance of the sector.
● Funding health research with a $1.5 million investment into health research for 2SLGBTQI+ people, including for at-risk newcomer asylum seekers and refugees.
Domestic LGBTQI+ Organizing
The threat to LGBTQI+ rights is rising around the world, and across nearly every region, movements for queer liberation are undergoing a moment of intense pressure and existential threat. Rainbow Railroad is part of a global network of LGBTQI+ organizations and rights defenders holding the line on anti-gender regression and fighting to advance protection for queer and trans people around the world. Investment in the global queer community, including within Canada, at this moment is vital to keeping the movement alive, and reaching LGBTQI+ folks around the world Activists, human rights defenders, and organizers understand the nuances of working in and around criminalized and de facto criminalized countries and contexts, and how to counter
16
anti-gender movements seeking to move backwards on LGBTQI+ rights issues They are on the ground holding the line on the global anti-gender movement and the LGBTQI+ rights pushback that is currently unfolding
Rainbow Railroad also does our work in collaboration and community with LGBTQI+ refugees themselves, local LGBTQI+ organizations, coalitions, donors, partners, and everyday Canadians all committed to enhancing safety for LGBTQI+ persons around the world. In 2024, RR invested in community mobilization, advocacy, and building post-relocation support systems We have noticed the deficit in locally available community support funding and launched new programming to address it in the form of the Community Support Teams (CST) and the Housing and Livelihood Assistance Fund (HLAF) In partnership with Canadian volunteers, Rainbow Railroad has committed to provide 3 months of financial and community integration support to LGBTQI+ asylum seekers. With technical and financial support from Rainbow Railroad staff, CSTs will connect program participants directly to available social services and introduce them to community spaces. While each CST’s exact support will be tailored to the community member they’re paired with, the CST program ensures that beneficiaries will receive direct cash assistance, support in navigating the housing and rental market, education and employment support, community navigation, and mental and physical health support
While we recognize this important expansion of resources responds to real needs of the LGBTQI+ asylum seekers we support in their resettlement journeys in Canada, responsibility for service access, housing, and integration support for refugees remains the core responsibility of the Government of Canada, and for these reasons Rainbow Railroad stands in solidarity with domestic coalitions calling for sustained investments in the Canadian LGBTQI+ rights movement and increased funding for essential services
Recommendations
1. Affirm Canada’s position as a world leader in international LGBTQI+ rights advancement by:
● Increasing funding for the LGBTQ2I International Assistance Program to $25 million per year, or 0 3% of the overall international development budget Key programs under this fund include Rainbow Railroad’s groundbreaking Queer Forced Displacement Initiative (QFDI), a global multi-lateral network dedicated to developing protection and durable solutions for queer and trans refugees around the world.
● Investing $1.37 billion over three years in the Global Fund to Fight AIDS, Malaria, and Tuberculosis.
● Establishing a new appointed position in government in the form of a Human Rights Ambassador to coordinate with like-minded countries on human rights, and advise senior Canadian officials
2. Continue leading international LGBTQI+ refugee resettlement by:
● Maintaining key implementation funding for Canada’s groundbreaking initiative for at-risk LGBTQI+ refugees, the Government-Assisted Refugee (GAR) partnership with Rainbow Railroad.
● Increasing key implementation funding for Canada’s flagship private sponsorship program for at-risk LGBTQI+ refugees, the Rainbow Refugee Assistance Partnership (RRAP) with Rainbow Refugee and the From Borders to Belonging (FB2B) coalition.
● Sustaining key implementation funding for other dedicated complementary LGBTQI+ humanitarian pathways and public policies supporting at-risk LGBTQI+ refugees escaping unsafe countries.
3 Invest in domestic LGBTQI+ organizing and essential services that build resilience against a growing global anti-gender movement by:
● Continuing investments in the Community Capacity Fund, and earmark an additional $2 million per year for the next three budgets to ensure long-term endurance of the sector.
● Funding health research with a $1.5 million investment into health research for 2SLGBTQI+ people, including for at-risk newcomer asylum seekers and refugees.
About Rainbow Railroad
Rainbow Railroad is an international NGO headquartered in Toronto and New York, providing direct support to at-risk LGBTQI+ persons to access pathways to safety. Since 2006, we have received over 65,000 requests for help (RfH) from individuals in over 190 countries facing persecution due to their sexual orientation, gender identity and expression, or sex characteristics (SOGIESC). In collaboration with a global network of grassroots organizations and human rights defenders, we have facilitated access to safer locations for over 2,300 people Since 2006, we’ve partnered with over 75 organizations across 36 countries and six regions