White Paper: Economic Inclusion for Autistic People in Canada

The Case for Double Empathy as a Guiding Principle in Canada’s Autism Strategy

Forward

The Government of Canada believes its policies proposed in the Framework for Autism in Canada should lead to autistic people being included, accepted and supported in a way that improves quality of life. Reaching this goal means doing things differently. It requires that stereotypes and old theories are dealt with head-on, such as the idea that social deficits or a lack of empathy define all autistic people, and autistic people alone. This proposal is a recognition of the literature on the Double Empathy Problem and the need to apply the Double Empathy framework to Canada’s Autism Strategy in a key priority area identified in the strategy—economic inclusion.

As the Government of Canada assembles the National Autism Network and the Federal-Provincial-Territorial (FPT) Working Group on Autism, the Double Empathy framework should be used as a guiding principle to ensure better communications so autistic people are listened to and understood better.

Autistic people in Canada face disproportionately high rates of unemployment and underemployment. Traditional employment discourse often relies on deficit-based medical models, which fail to consider the Double Empathy Problem—a framework recognizing how communication barriers between autistic and non-autistic (allistic) people are reciprocal rather than one-sided. By integrating Double Empathy into human resource policies, hiring practices, and workplace accommodations, Canada can significantly improve employment prospects for autistic people. This proposal outlines how Double Empathy-informed employment policies can enhance economic inclusion and create a more neurodiverse-friendly labor market.

The groundwork for communications and understanding between autistic people and allistic needs to be laid at every level of society to ensure the successful implementation of the strategy. Well-meaning people often want to do the right thing; however, a mistake people often make is attempting to be ‘welcoming’ without first doing the work and making the proper perceptual and systemic adjustments.

The act of being welcoming is a surface-level gesture, which often refers to creating a friendly environment. It's about initial impressions and attempting to make people feel comfortable. It can be passive, involving gestures like smiles, greetings, and a general sense of hospitality. However, it doesn't address underlying systemic barriers or ensure equitable participation, which makes these gestures performative in nature.

Inclusion goes beyond surface-level gestures. It's about actively creating an environment where everyone feels valued, respected, and empowered to participate fully. In this case, Inclusion means including autistic ways of learning, communicating, being, and seeing. This is why the Double Empathy framework needs to be applied. This requires the development of a knowledge base that can be shared with all networks, to help all people, both autistic and allistic.

To break from past stigma and stereotypes, we must accept that communication and empathy between autistic and allistic people is a two-way street. For this reason, the Double Empathy framework should be integrated as a guiding principle in Canada’s Autism Strategy, and applied to the National Autism Network and the Federal-Provincial-Territorial (FPT) Working Group on Autism to build on a new foundation of knowledge, participation and equality.

Background

Economic inclusion is a key pillar of Canada’s Autism Strategy, which was tabled in Parliament in September 2024. The strategy aligns with the Federal Framework on Autism Spectrum Disorder Act (Bill S-203) and the Canadian Academy of Health Sciences (CAHS) 2022 report, which identifies economic participation as a critical area for policy intervention. The Government of Canada has committed to improving employment accessibility through the Disability Inclusion Action Plan (DIAP) and the Employment Strategy for Canadians with Disabilities (2024-2040). However, existing policies do not adequately address the role of social perception and communication biases in autistic employment disparities.

The Double Empathy Problem and Employment Outcomes

Research consistently demonstrates how autistic people are often perceived as less competent, likable, or trustworthy by neurotypical peers, which negatively impacts employment opportunities. Introduced by Damian Milton, the Double Empathy Problem challenges the assumption that autistic people alone are responsible for communication challenges. Instead, Double Empathy emphasizes that autistic and allistic people experience misunderstandings due to differing communication styles.

Barriers to Employment for Autistic Canadians

One significant barrier autistic people face in employment is the pervasive emphasis on "culture fit" during hiring and workplace integration. Many organizations prioritize hiring people who seamlessly align with existing workplace norms, values, and social dynamics. However, this concept inherently excludes autistic people, whose behaviors, learning and communication styles may diverge from neurotypical expectations. Instead of fostering diversity and inclusion, the emphasis on "culture fit" reinforces systemic biases, limiting opportunities and exacerbating the employment gap for all neurodivergent people.

Hiring Bias and Interview Disadvantages

Traditional hiring processes prioritize neurotypical communication styles and implicit norms, disadvantaging autistic candidates. Autistic applicants often perform well in work-related tasks but struggle in the dominant forms of social dynamics and unstructured interviews due to indirect questioning styles. Disclosure also remains a significant barrier; autistic people who disclose their diagnosis face stigma and discrimination but those who do not may lack necessary accommodations and continue to mask as a matter of basic survival. Masking is often necessary, but when you have to hide who you are your whole life, the damage can be devastating.

Workplace Miscommunication and Social Exclusion

Workplace employee surveys in public service consistently show that people with disabilities are a group of people who experience some of the lowest sense of belonging in the workplace. Autistic employees frequently experience misinterpretation of their social behavior and communication styles, leading to exclusion from professional networks and social capital. Many employers misinterpret autistic communication styles as a lack of cooperation or teamwork skills, despite evidence proving how autistic people can thrive in collaborative settings when workplaces provide structured support that embraces diverse working approaches.

Lack of Double Empathy-Informed Workplace Communications

Many workplace adjustments focus on sensory needs but neglect social and communication adjustments. Current diversity and inclusion training may not use Double Empathy principles, leaving employers unaware of reciprocal communication differences. This lack of knowledge creates an environment in which autistic people are at a disadvantage and risk being excluded and made pariahs.

The Double Empathy Framework

The Double Empathy Problem proposes that communication breakdowns in mixed-neurotype interactions result from a mutual lack of shared experience rather than autistic-specific deficits. For instance, studies have found that allistic people: 1) struggle to recognize autistic facial expressions (Brewer et al., 2016); 2) overestimate their ability to communicate effectively with autistic people (Heasman & Gillespie, 2019); and 3) report lower levels of rapport in mixed-neurotype interactions (Crompton et al., 2020). There are many more examples.

The Double Empathy Problem challenges traditional deficit-based views of autism and provides a more nuanced understanding of neurodiverse communications. Research indicates that social misunderstandings between autistic and allistic people stem not just from autistic traits but also from a shared difficulty in understanding each other’s perspectives and experiences. Moreover, disadvantages often arise due to the dominant societal norms rather than inherent impairments.

The application of Double Empathy as a framework for a neuroinformed public service offers a transformative approach to economic inclusion for autistic people. By shifting from deficit-based perspectives to reciprocal communication models, Canada is better positioned to reduce employment disparities and create a workforce that values neurodiverse contributions. Integrating Double Empathy into employment policies will create better conditions to ensure that autistic people have equal access to meaningful work opportunities and, more importantly, economic stability.

Overcoming Stereotypes and Stigma

Autism is a spectrum, and we are not all the same. However, stereotypes about autism stem from deficit-based models and mass media representations, which frame autism in ways that are not representative of the spectrum. This contributes to "othering," stigma, and discrimination, reinforcing societal barriers that limit opportunities for autistic people (Goffman, 1990; Cage et al., 2018; Pearson & Rose, 2021).

Double Empathy-Informed Research and Methodologies

Research and communications that applies the Double Empathy framework will promote evidence-based decision making, and individualized understanding over assumptions and broad stereotypes. Methodologies that encourage multiplicity and neurodiversity highlight the importance of: 1) assessing individual differences to move beyond simplistic group categorizations; 2) avoiding rigid methodologies that reinforce old stereotypes and assumptions; and 3) engaging in immersive shared experiences to foster mutual understanding.

By prioritizing neurodiverse perspectives, the Double Empathy framework provides a pathway toward more effective communications for both autistic and allistic people. This is not meant to dismiss medical models—which overlook Double Empathy—but rather to introduce a more balanced perspective that is currently missing.

The Case for the Double Empathy Framework

The strengths of neurodiverse people remains largely untapped in Canada. This is due to a number of reasons, many of which can be linked to systemic barriers and stigma based on old theories and poor representations of neurodiverse people in mass media, all of which is due to a lack of education, or more importantly, a lack of incentive to educate oneself about autism and neurodiversity.

Companies embracing neurodiverse hiring programs—such as Microsoft and JPMorgan Chase—are gaining a competitive advantage by leveraging the unique cognitive strengths of autistic employees, including pattern recognition and problem-solving skills. This is an example of how employers can shift away from viewing autism as a workplace challenge and toward recognizing the benefits of neurodivergent thinking. These insights reinforce the need for workplaces to adopt communication strategies and policies that foster mutual understanding, aligning with the core principles of the Double Empathy framework.

In the past ten years there have been important developments in Canada, specifically in the realm of lived experience and self-advocacy. The 2007 Senate report, "Pay Now or Pay Later: Autism Families in Crisis," inspired the Autism Alliance of Canada to initiate a nationwide effort to lobby the Government of Canada to adopt a national autism strategy, a campaign the Alliance has maintained for over 14 years.

Canada enacted the Federal Framework on Autism Spectrum Disorder Act in 2023 with unanimous support from both the Senate and the House of Commons. On September 26 of 2024, the Framework for Autism in Canada and Canada’s Autism Strategy was tabled in Parliament. It is anticipated that a leading organization for the National Autism Network will be announced in the spring of this year. Once established, the Network will unite the expertise and resources of autism organizations and stakeholders, including people with lived experience.

The Government believes that progress can come from these developments but only if they are met with new responses. The proposed Double Empathy framework is a new response to the Canada Autism Strategy. In essence, to argue against the Double Empathy framework is to uphold double standards, stereotypes, and discrimination—the continued isolation and separation of autistic people from society.

Autistic people in Canada continue to face significantly higher rates of unemployment and underemployment compared to both the broader disability community and the general population. This ongoing economic instability has wide-ranging consequences, impacting personal well-being and broader social and economic conditions. Financial hardship among autistic and disabled people was further intensified during the COVID-19 pandemic, as many were excluded from critical financial relief programs. The lack of adequate support systems left many struggling to meet basic needs, which highlights the pressing need for policies that foster economic inclusion and long-term stability.

According to Statistics Canada (2022, 2023), the employment rate for persons aged 16 to 64 with disabilities was 65. percent, significantly lower than the 80.1 percent employment rate for those without disabilities. Additionally, the unemployment rate for persons with disabilities (6.9) was nearly twice as high as for persons without disabilities (3.8). Employment rate for autistic Canadians aged 20 to 64 was 33 percent.

One of the key factors contributing to these employment challenges is the Double Empathy Problem. For instance, a study on Autism and Employment Challenges found that autistic participants were significantly better at accurately interpreting the behavior of other autistic people compared to allistic participants. This reinforces the idea that workplace challenges are not simply deficits within autistic people but rather reflect a misalignment in communication and social expectations between neurodivergent and neurotypical employees.

Another study, published in Autism Research, explored how autistic and allistic people interpret the behaviors of autistic employees in the workplace. Findings demonstrated how autistic participants were more accurate in understanding autistic employees' behaviors, whereas allistic participants struggled with accurate interpretation. These results provide further evidence that employment challenges for autistic people are deeply rooted in systemic barriers and allistic assumptions and misunderstandings rather than intrinsic social impairments.

By addressing Double Empathy in workplace policies and management practices, organizations can create a more inclusive and supportive work environment for all employees. This shift away from a deficit-based model toward a more nuanced framework of mutual understanding is crucial for improving employment outcomes for autistic adults and equal participation in the workforce.

Implementation of the Double Empathy Framework

Over the next five years, the Canada Autism Strategy will be implemented through several governance mechanisms, including the Federal-Provincial-Territorial (FPT) Working Group on Autism, the Interdepartmental Steering Committee on Autism, and a newly established National Autism Network. The Public Health Agency of Canada (PHAC) will also explore Indigenous-led approaches to addressing autism-related priorities within Indigenous communities. This proposal advocates for the use of Double Empathy as a guiding principle for these initiatives.

National Autism Strategy Secretariat

The PHAC’s National Autism Strategy Secretariat will coordinate the implementation of the Framework for Autism in Canada, aligning its work with the key priority areas. The Secretariat will facilitate collaboration among federal, provincial, and territorial partners through established governance mechanisms and a newly created national network engaging experts and stakeholders. Using Double Empathy as an additional communications framework will help ensure that the diverse perspectives of both autistic and allistic people are recognized and respected, fostering mutual understanding, reducing misunderstandings, and promoting more inclusive, effective collaboration in policy development and implementation.

National Autism Network

The PHAC will provide funding to establish the National Autism Network to support key priority areas. The Network will establish advisory committees composed of Autistic people, advocates, and family members to guide policy and program development. The Network will also develop a national research network to advance interdisciplinary research, and enhance knowledge mobilization. Using Double Empathy as an additional communications framework will help ensure mutual understanding and effective communication between all stakeholders, fostering a more inclusive, productive and collaborative environment.

Federal-Provincial-Territorial (FPT) Working Group on Autism

The FPT Working Group will have an updated mandate with revised Terms of Reference and a workplan to support the autism framework and strategy. The PHAC will facilitate information sharing and best practices across jurisdictions and sectors, with a focus on key priority areas such as economic inclusion. Using Double Empathy as an additional communications framework will help ensure that the perspectives and experiences of autistic people are central to the development of economic inclusion strategies, leading to more effective and sustainable outcomes.

Interdepartmental Steering Committee on Autism

The mandate of the Interdepartmental Steering Committee will be updated to enhance coordination across federal initiatives. For example, the PHAC will ensure that the voices of autistic Canadians are considered in the Disability Inclusion Action Plan, which supports inclusive employment opportunities and workplace accommodations. Using Double Empathy as an additional communications framework will help ensure that the voices of autistic Canadians are not just heard, but truly understood and incorporated into the Disability Inclusion Action Plan, resulting in policies that create real and sustainable change.

Distinctions-Based Approaches to Implementation

The Government of Canada acknowledges the unique experiences of Indigenous communities regarding autism. The PHAC will continue to engage First Nations, Inuit, Métis, and Urban-Indigenous Peoples to develop distinctions-based, Indigenous-led approaches to autism-related priorities. Using Double Empathy as an additional communications framework will help ensure that the development of distinctions-based, Indigenous-led approaches to autism is grounded in genuine understanding and reciprocal communication, rather than assumptions.

Embracing Lived Experiences

The successful implementation of Canada’s Autism Strategy depends on diverse expertise and perspectives. The National Autism Network will play a central role in bringing together autistic people, advocates, family members, caregivers, and experts to provide continuous input on key priority areas. One of the Network’s first tasks will be to establish Advisory Committees to contribute to the Implementation Plan.

These committees will also provide guidance to other governing bodies, such as the FPT Working Group and the Interdepartmental Steering Committee, ensuring a coordinated national approach. By fostering collaboration across governing bodies and prioritizing input from people with lived experience, the Implementation Plan will drive meaningful and sustainable support for autistic people, their advocates, caregivers, and families. Using Double Empathy as an additional communications framework will help ensure that communication within and between Advisory Committees, governing bodies, and people with lived experience is clear, respectful, and productive, minimizing misunderstandings and fostering effective collaboration.

CONCLUSION

This proposal advocates for the integration of the Double Empathy framework as a foundational principle within Canada's Autism Strategy. This initiative aims to cultivate a more empathetic and effective communication landscape, specifically bridging the persistent communication gap between autistic and allistic people. By embedding this framework, we seek to move beyond traditional deficit-based models and foster a culture of mutual understanding and respect. The application of Double Empathy will ensure that the strategy's implementation, from policy development to service delivery, is grounded in genuine reciprocal communication.

Furthermore, the intention extends beyond the immediate scope of Canada’s Autism Strategy. We envision the Double Empathy framework permeating broader societal structures, particularly in areas crucial for economic inclusion. Sectors such as human resources, employment services, and workplace accommodations stand to benefit significantly from a communication approach that acknowledges and values neurodiversity. By promoting the Double Empathy framework within these realms, we can create more inclusive and equitable environments, enabling autistic people to fully participate and thrive in the workforce and society at large.

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