International Law for Women

a resource for women's human rights advocates

Tag: reproductive freedoms

  • When abortion is legal but inaccessible: an analysis under international law

    When abortion is legal but inaccessible: an analysis under international law

    Women’s reproductive freedoms are rapidly regressing and facing increasing restrictions around the globe. Women in the United States, Poland and Malta are dying due to restrictive laws and lack of accessibility. And according to the European Citizens’ Initiative, My Voice, My Choice: For Safe and Accessible Abortion more than 20 million women in the EU do not have access to safe, affordable abortion. Conversely, in Canada abortion is legal and covered by primary healthcare. However, on July 25th, 2025, women’s advocacy organizations across the nation sounded the alarm in a Joint Statement to the new Liberal Prime Minister Mark Carney warning of the regressive impact that proposed austerity measures will have on women’s rights and gender equality. The budget for the Women and Gender Equality (WAGE) Department proposed 80%[i] less funding over each of the next four years as compared with the 2025-26 budget. The impact will be felt not just in the WAGE Department, but in local feminist organizations, women’s shelters, sexual assault services and more, including abortion facilitation services. Canadian women living in rural and remote areas often lack the means of access to safe, legal abortions due to the unavailability of the necessary healthcare services in their regions; the scope of this impact will likely be extended given the circumstances. In the context of reduced accessibility and austerity measures, what legal arguments might women’s rights advocates depend upon? The following is a legal analysis of the international human rights obligations pertinent to the situation in Canada, which may also apply to other States with the same obligations.

    AI generated image of a young woman sitting on the floor looking sadly contemplative; the background is a domestic interior but is blurred

    The Right to Health – Art. 12 of the International Convention on Economic, Social and Cultural Rights (ICESCR)

    The ICESCR provides for the right to the “highest attainable standard of physical and mental health”[ii].

    Article 12

    1. The States Parties to the present Covenant recognize the right of everyone to the enjoyment of the highest attainable standard of physical and mental health.

    2. The steps to be taken by the States Parties to the present Covenant to achieve the full realization of this right shall include those necessary for:

    (a) The provision for the reduction of the stillbirth-rate and of infant mortality and for the healthy development of the child;

    (b) The improvement of all aspects of environmental and industrial hygiene;

    (c) The prevention, treatment and control of epidemic, endemic, occupational and other diseases;

    (d) The creation of conditions which would assure to all medical service and medical attention in the event of sickness.

    While the fundamental right to health is subject to progressive development, States should nevertheless ensure that it is moving towards its full realization, as stated in Article 2 of the Covenant.

    Non- Discrimination

    Article 2 paragraph 2 of the ICESCR provides for non-discrimination in the implementation of the Covenant – “The States Parties to the present Covenant undertake to guarantee that the rights enunciated in the present Covenant will be exercised without discrimination of any kind as to race, colour, sex, language, religion, political or other opinion, national or social origin, property, birth or other status”.

    Non-discrimination is not subject to progressive development – it must be respected immediately upon accession to the Covenant. However, according to the World Economic Forum “we still face wide gaps in research and treatment ability for areas that are unique to women”[iii], which is in contravention of Art. 2, para. 2 ICESCR. Maternal health, and abortion are just two of many areas of treatment that pertain exclusively to the health of persons of female sex (females). Even if a law doesn’t single out females in fact, if there is no equivalent adverse effect on males, then the law may be found to be discriminatory.[iv] Health inequality is a result of systemic discrimination against women and gender diverse persons, and it must be compliant with international law.

    In 2000, the Committee on Economic, Social and Cultural Rights issued General Comment No. 14: The Right to the Highest Attainable Standard of Health (Art. 12), according to which:

    “To eliminate discrimination against women, there is a need to develop and implement a comprehensive national strategy for promoting women’s right to health throughout their life span. Such a strategy should include interventions aimed at the prevention and treatment of diseases affecting women, as well as policies to provide access to a full range of high quality and affordable health care, including sexual and reproductive services. A major goal should be reducing women’s health risks, particularly lowering rates of maternal mortality and protecting women from domestic violence. The realization of women’s right to health requires the removal of all barriers interfering with access to health services, education and information, including in the area of sexual and reproductive health. It is also important to undertake preventive, promotive and remedial action to shield women from the impact of harmful traditional cultural practices and norms that deny them their full reproductive rights.” (author’s emphasis)

    Pregnancy can be both a direct and indirect cause of harm to women. Maternal morbidity and mortality are direct consequences of pregnancy, especially for adolescents. Indirectly, lack of access to safe abortion services can result in the administration of unregulated and unsafe abortions that can cost a woman or girl her life. Furthermore, sex or gender-based violence and femicide can be tragic indirect consequences of an unintended or unwanted pregnancy by an intimate partner or family members.


    As a State party to the Convention of Elimination of Discrimination against Women (CEDAW), Canada submitted its tenth periodic report as proscribed by Article 18 of the Convention. The Committee on the Elimination of All Forms of Discrimination Against Women, in their 2024 Concluding Observations on the tenth periodic report of Canada[v] recommended that Canada “ensure access to legal abortion services in all provinces and territories, including for women from disadvantaged groups”. Furthermore, the Committee cited “the persistent barriers in the public health system hindering access to abortion care, disproportionately affecting women from disadvantaged groups, women in remote and rural areas and undocumented migrants”[vi].

    Royalty free map of Canada by Picryl

    Positive obligations of the State

    The right to health requires positive obligations from the State including the duty to fulfil and the duty to promote.

    The duty to fulfil the right to health requires due attention to the four A’s: availability, accessibility, adequacy and acceptability. The acceptability of healthcare, which is also known as quality, is explained by the World Health Organization (WHO). The WHO “considers several aspects of quality, including whether Universal Health Care (UHC) is timely – reducing wait times and harmful delays – and equitable – providing care that does not vary in quality on account of age, gender, ethnicity, disability, geographic location, and socio-economic status”[x]. Reducing harmful delays for abortion is essential.

    The duty to promote, in the case of reproductive healthcare, means ensuring availability of education and information on access to necessary services including contraception, family planning, adoption, emergency contraception and medical abortion options.

    Territorial scope

    Although Canada is a federal State which is divided into provinces and territories with a decentralized administration of healthcare under each, any obligations on the State apply to its entire territory. This rule of law is affirmed in several sources of international law, including the Vienna Convention on the Law of Treaties (VCLT), Art. 29 on the territorial scope of treaties[xi].

    In its General Comment No. 28 on the core obligations of States parties, the Committee on the Elimination of Discrimination against Women (CEDAW) addresses the devolution of powers.

    “…The decentralization of power, through devolution and delegation of Government powers in both unitary and federal States, does not in any way negate of reduce the direct responsibility of the State party’s national or federal Government to fulfil its obligations to all women within its jurisdiction. (…) States parties have to make sure that the devolved authorities have the necessary financial, human and other resources to effectively and fully implement the obligations of the State party under the Convention. (…) Furthermore, there must be safeguards to ensure that decentralization or devolution does not lead to discrimination with regard to the enjoyment of rights by women in different regions.”

    Essentially, the State (Canada) may be found responsible for acts or omissions by provincial authorities that violate human rights.

    Key Human Rights Inquiries and case law

    Inaccessibility of healthcare provisions can be a cause of indirect discrimination and of de facto or substantive inequality. This has been affirmed through UN Human Rights Treaty Bodies and case law alike.

    According to the CEDAW Committee’s General recommendation No. 35 on gender-based violence against women, updating general recommendation No. 19, paragraph 18“Violations of women’s sexual and reproductive health and rights, such as forced sterilization, forced abortion, forced pregnancy, criminalization of abortion, denial or delay of safe abortion and/or post-abortion care, forced continuation of pregnancy, and abuse and mistreatment of women and girls seeking sexual and reproductive health information, goods and services, are forms of gender-based violence that, depending on the circumstances, may amount to torture or cruel, inhuman or degrading treatment.”[xii]

    The UN Human Rights Committee (HRC) considered a communication[xiii] submitted Amanda Jane Mellet against Ireland in 2013. She was a married women who found out in the twenty-first week of pregnancy that her foetus had congenital heart defects that would be fatal, either in utero or shortly after birth. Mellet was deeply concerned over the potential suffering of her baby and considered abortion to be the best option. However, abortion was illegal in Ireland even if the impairment would be fatal.

    “2.4 On 28 November 2011, she flew with her husband to Liverpool and the following day she received medication at the Women’s Hospital to begin the process of terminating her pregnancy. On 1 December, she received further medication to induce labour. She was in labour for 36 hours and on 2 December she delivered a stillborn baby girl. Still feeling weak and bleeding, she had to travel back to Dublin, only 12 hours after the delivery, as they could not afford to stay any longer in the United Kingdom. (1) There is no financial assistance from the State or from private health insurers for women who terminate pregnancies abroad.”[xiv]

    (…)

    “3.3 (…) The travel abroad was also a significant source of added anxiety and exposed her to obstacles which impinged on her physical and mental integrity and dignity. She had to make preparations for the travel; was deprived of the support of her family; had to stay in a foreign and uncomfortable environment while in Liverpool; and had to spend a sum of money which was difficult for her to raise. While waiting at the airport to fly home, only 12 hours after the termination, she was bleeding, weak and light-headed.”[xv]

    The HRC found Ireland in violation of article 7 of the International Covenant on Civil and Political Rights (ICCPR), which provides a non-derogable right which states that “No one shall be subjected to torture or to cruel, inhuman or degrading treatment or punishment. In particular, no one shall be subjected without his free consent to medical or scientific experimentation.”[xvi].

    The Committee also found that Ireland violated article 17 of the ICCPR, which prohibits interference with private life, and article 26 which guarantees equality before the law.

    In the context of Mellet v Ireland, the State of Ireland prohibited and criminalized abortion expect in cases where the mother’s life was at risk and furthermore declined to provide information on resources where an abortion could legally be performed given the extenuating circumstances. The Irish law provided no access to remedy and denied Mellet post-abortion care, including grievance counselling, which they only provided to mothers who had delivered a stillborn foetus.

    The circumstance of travelling 218 km to access a legal abortion, as did Mrs. Mellet, is entirely conceivable given Canada’s vast territorial expanse. Additionally, how far along in pregnancy a woman is can limit the number of healthcare facilities available to perform the medical abortion. According to Abortion Access Tracker “because of limitations to residents of certain regions, as well as overwhelming demand while being severely under-resourced, there is low availability of abortion care after 20 weeks in Canada.” Therefore hypothetically, in cases that are sufficiently analogous, Canada may too be found in violation of the Convention Against Torture, of which it ratified in 1987. (The U.S. is even more likely given the current circumstances; even though the U.S. hasn’t ratifed the treaty, the prohibition of torture has a jus cogens status, a status of non-derogability, and has become a part of customary international law. )

    This obstacle to the right to health in Canada adversely affects women and girls from rural and remote regions. And without any funding for travel expenses, including meals, accommodation, potential airfare or ferry costs, lost time from work, and childcare costs, lack of financial support will significantly and adversely affect women and girls from lower socio-economic statuses.

    Consequences to abortion inaccessibility

    The United Nations Committee on Elimination of Discrimination Against Women (CEDAW) has expressed concern over the potentially life-threatening consequences of unplanned and/or unwanted pregnancies, unsafe abortions and preventable maternal deaths[xviii]. And, according to a study by Doctors without Borders/Medicins sans Frontieres on unsafe abortions “the life-threatening consequences include severe hemorrhage, sepsis (severe general infection), poisoning, uterine perforation, or damage to other internal organs. A woman may require urgent hospital care for a blood transfusion, major reparative surgery, or a hysterectomy—the complete, and irreversible, removal of the uterus.”[xix]

    In October of 2025 the United Nations Human Rights Council adopted a resolution that addresses Preventable maternal mortality and human rights[xx]. The Council noted with concern that “the risk of maternal mortality is higher for adolescents and highest for girls under 15 years of age and that complications in pregnancy and childbirth are a leading cause of death and severe morbidity among adolescent girls in low- and middle-income countries, acknowledging that the issue also persists in high-income countries.”[xxi]

    The obstacles to obtaining a legal abortion can result in the some of the same adverse outcomes as it does in States where abortion is illegal, including attempts at unsafe abortion, maternal death, susceptibility to remaining in an abusive relationship, increased vulnerability to lack of education and/or lack of employment, loss of financial independence and stability, suicide and infanticide. If they survive, the cost of an unwanted pregnancy may be a lifetime of hardship for mother and child alike.

    In addition to the cost of an unwanted pregnancy on an individual and child, the community and ultimately the State pay a price too. Support may start with a pre-natal shelter[xxii], natal supplement[xxiii], infant formula[xxiv], and other supplemental support. Then there is the standard Canada child benefit (CCB) at up to $7,997 per year for each child under 6 and $6748 per year for each child aged 6-17, as well as provincial income assistance (in B.C. $1405 per month for a single parent with one child[xxv]), totalling approximately $25,000 annually for a single parent with a young child. This cost to Canadian taxpayers is significantly higher than the cost of accommodating access to abortion services or preventative measures including education and contraception.

    Recommendations by International Human Rights Treaty Bodies

    The United Nations Human Rights Committee (HRC) conducted a Universal Periodic Review (UPR) on Canada’s human rights performance in 2023. The issue of inaccessibility of abortion services was cited in both the Summary of stakeholders’ submissions on Canada[xxvi] and in the Report of the Working Group[xxvii], with concerns expressed by Iceland and Norway. Canada responded to the recommendations of the Working Group as “noted”[xxviii] – a vague acknowledgement that makes no promises.

    Additionally, the treaty monitoring body for the International Covenant on Economic, Social and Cultural Rights (ICESCR), a core human rights legal instrument which Canada ratified and acceded to in 1976, expressed the same concerns. In the Concluding Observations on the sixth periodic report of Canada[xxix] the Committee on Economic, Social and Cultural Rights provided these recommendations to Canada:

    51. The Committee welcomes the information provided by the delegation on measures taken to facilitate access to legal abortion services. It remains concerned, however, at disparities in access to such services and to affordable contraceptives (art. 12)

    52. The Committee recommends that the State party ensure access to legal abortion services in all provinces and territories. The Committee also recommends that the State party ensure that physicians’ conscientious objection does not impede women’s access to legal abortion services. The Committee also recommends that affordable contraceptives be made accessible and available to all, and in particular those living in remote areas and those living in poverty. The Committee refers to its General Comment No. 22 (2016) on the right to sexual and reproductive health.

    Furthermore, Canada has been urged to ratify the Optional Protocol to the International Covenant on Economic, Social and Cultural Rights (ICESCR) in the interest of enabling the political participation of citizens and NGOs alike. Women’s rights advocacy groups should also continue to encourage ratification of the Optional Protocol to the ICESCR as it would enable individuals and groups to file complaints to the Committee in cases of State non-compliance with the Covenant, following exhaustion of local remedies.

    Conclusion:

    Could Canada be found in violation of Article 12 (the right to health) of the International Convention on Economic Social and Cultural Rights? Or worse?

    When the UN treaty monitoring bodies, such as the CEDAW Committee or the Committee on Economic, Social and Cultural Rights find that a States’ actions or omission are not in conformity with their treaty obligations, they will consider the circumstances of each specific case. Whether or not a States’ actions or omissions were the result of extraordinary circumstances that are considered permissible or not, would be up to the Committee to decide. Hence, it is only if the State’s treaty performance is challenged that the ruling would emerge.


    [i] Table 7: Planned three-year spending on core responsibilities and internal services; Planned Spending and human resources; Women and Gender Equality Canada’s 2025-26 Departmental Plan; Government of Canada website: https://www.canada.ca/en/women-gender-equality/transparency/departmental-plans/2025-2026.html#toc4  Accessed Sept. 14, 2025  

    [ii] International Covenant on Economic, Social and Cultural Rights; 1966; adopted by the General Assembly resolution 2200A (XXI)

    [iii] Women’s health: Why is the health of at least half the global population so often overlooked? Deeptha Khanna; January 2, 2023; https://www.weforum.org/stories/2023/01/women-health-gap-davos-2023/ (Accessed August 27, 2025)

    [iv] See for example Fraser v. Canada (Attorney General), 2020 SCC 28, [2020] 3 S.C.R. https://decisions.scc-csc.ca/scc-csc/scc-csc/en/item/18510/index.do

    [v] Pg. 15; paragraph 38 (e); CEDAW Concluding observations on the tenth periodic report of Canada; UN Doc. CEDAW/C/CAN/CO/10; October 30, 2024.

    [vi] Pg. 14; paragraph 37 (e); CEDAW Concluding observations on the tenth periodic report of Canada; UN Doc. CEDAW/C/CAN/CO/10; October 30, 2024.

    [vii] Hannah Ritchie and Edouard Mathieu (2019) – “Which countries are most densely populated?” Published online at OurWorldinData.org. Retrieved from: ‘https://ourworldindata.org/most-densely-populated-countries’ [Online Resource] Accessed October 24, 2025.

    [viii]  https://www.canada.ca/en/immigration-refugees-citizenship/corporate/publications-manuals/discover-canada/read-online/canadas-regions.html  Accessed October 24, 2025.

    [ix] Section 3;  https://laws-lois.justice.gc.ca/eng/acts/C-6/page-1.html#h-151484  Accessed October 30, 2025.

    [x] Core components of the right to health; Key facts; Human Rights; WHO; December 1, 2023; https://www.who.int/news-room/fact-sheets/detail/human-rights-and-health#:~:text=The%20right%20to%20health%20includes,goods%20and%20services%20for%20all  (Accessed Aug 21, 2025)

    [xi] Article 29, Vienna Convention on the Law of Treaties (1969); Entered into force on 27 January 1980.

    United Nations, Treaty Series, vol. 1155, p. 331 https://legal.un.org/ilc/texts/instruments/english/conventions/1_1_1969.pdf

    [xii] Para. 18, page 7; General recommendation No. 35 on gender-based violence against women, updating general recommendation No. 19; UN CEDAW Committee; CEDAW/C/GC/35; 26 July 2017.

    [xiii] Human Rights Committee; Views adopted by the Committee under article 5 (4) of the Optional Protocol, concerning communication No. 2324/2013;CCPR/C/116/D/2324/2013; distributed 17 Nov. 2016;  https://docs.un.org/en/CCPR/C/116/D/2324/2013 

    [xiv] Ibid, para. 2.2 and 2.4; page. 2.


    [xv]  Ibid, para. 3.3, page 3.

                      1 The author states that they spent €3,000 in total, including the €2,000 fee they paid for the procedure.

    [xvi] Art. 7,Part II, International Convention on Civil and Political Rights; adopted by UN General Assembly res. 2200A (XXI) 1966; https://www.ohchr.org/en/instruments-mechanisms/instruments/international-covenant-civil-and-political-rights

    [xvii] https://abortioncarecanada.ca/the-autonomy-fund/  Accessed October 25, 2025.

    [xviii] Para. 2; CEDAW/C/OP.8/PHL/1; https://www.ohchr.org/en/stories/2015/06/un-womens-committee-makes-inquiry-sexual-and-reproductive-health-rights-philippines (accessed August 29, 2025)

    [xix]  Unsafe abortion: A preventable danger; Unsafe abortion is one of the five leading causes of maternal mortality, and the only one that is preventable. Medicins sans Frontieres; March 7, 2019; https://www.doctorswithoutborders.org/latest/unsafe-abortion-preventable-danger#:~:text=For%20women%20who%20use%20these%20unsafe%20methods%2C,complete%2C%20and%20irreversible%2C%20removal%20of%20the%20uterus.  Accessed Sept. 28, 2025

    [xx] Resolution A/HRC/60/L.20/Rev.1 https://docs.un.org/en/a/hrc/60/l.20/rev.1 Adopted by the Human Rights Council; 60th Session, October 2025.

    [xxi] Ibid. Preamble, page 4, paragraph 7.

    [xxii] “If you are pregnant, you may be able to get money to secure or maintain stable housing before your child is born. You must have no spouse and have no other dependent children.” https://www2.gov.bc.ca/gov/content/family-social-supports/income-assistance/on-assistance/supplements  Accessed Sept. 15, 2025.

    [xxiii] “If you are pregnant or have an infant less than thirteen months old, you may be able to get an extra $80 per month.” Ibid.

    [xxiv] For your child’s first 12 months, you could get money for: Regular infant formula. This is when the child has a medical need for regular infant formula; Specialized infant formula. This is only if your child has a medical condition that requires special formula. You may be able to get this longer than 12 months if it’s medically required; Ibid.

    [xxv] https://www2.gov.bc.ca/gov/content/family-social-supports/income-assistance/on-assistance  Accessed Sept. 15, 2025.


    [xxvi] Pg. 7; point 66 sub-heading “Right to health”; Summary of stakeholders’ submissions on Canada – Report of the Office of the United Nations High Commissioner for Human Rights; UN document A/HRC/WG.6/44/CAN/3; September 4, 2023.

    [66. JS3 stated that, although abortion was a decriminalized health-care service, many people lacked access to the public health system entirely and others faced prohibitive barriers to abortion care, including travel costs, long wait times, immigration status and intimate partner violence.119 (Joint submission 3 submitted by: The Sexual Rights Initiative, Ottawa (Canada); Action Canada for Sexual Health and Rights; Barbra Schlifer Commemorative Clinic; Justice for Migrant Workers; J4MW-YWCA Hamilton – The Community Research Platform at McMaster University, Sexual Rights Initiative)]

    [xxvii] Pg. 16, points 37.186 (by Iceland) and 37.187 (by Norway); Report of the Working Group on the Universal Periodic Review – Canada; UN document A/HRC/55/12; December 19, 2023.

    [xxviii] Pg. 2 (Recommendations and Canadian Position); Report of the Working Group on the Universal Periodic Review – Canada – Addendum – Views on conclusions and/or recommendations, voluntary commitments and replies presented by the State under review; UN Doc. A/HRC/55/12/Add.1; March 15, 2024.

    [xxix] Pg. 9; paragraphs 51 and 52; Concluding Observations on the sixth periodic report of Canada; E/C.12/CAN/CO/6; March 23, 2016.