Discrimination against Indigenous and Racialized Women in...

DiscriminationagainstIndigenousandRacializedWomeninCanadaReporttotheCommitteeontheEliminationofRacialDiscriminationontheOccasionoftheCommittee’stwenty-firsttotwenty-thirdPeriodicReviewofCanadaSubmittedJuly2017bytheFeministAllianceforInternationalAction(FAFIA),ChairinIndigenousGovernance,andtheCanadianAssociationofElizabethFrySocieties(CAEFS)

DiscriminationagainstIndigenousandRacializedWomeninCanada

TableofContentsIntroduction...........................................................................................................................1

Acknowledgements................................................................................................................1

ContactInformation...............................................................................................................2

InequitableaccesstoessentialservicesforFirstNationschildren(Articles1(4),2,and5).......3I. ConventionontheEliminationofallFormsofRacialDiscrimination(CERD)Committee’s

ConcernsandPreviousRecommendations...............................................................................3II. ConcernsRaisedinGeneralRecommendationNo23:RightsofIndigenousPeoples(1997)........3III. TheLackofCulturallyAppropriateChildWelfarePreventionServices.......................................3IV. TheIntersectionofViolenceAgainstIndigenousWomenandGirlsandtheChildWelfare

System.....................................................................................................................................4V. OngoingfailuretocomplywithaCanadianHumanRightsTribunalorderinganendtosuch

discrimination(Article6)..........................................................................................................6VI. Recommendations....................................................................................................................8

SexDiscriminationintheIndianAct(Articles2and5)............................................................9I. CERDCommittee’sConcernsandPreviousRecommendations...................................................9II. HistoryofSexDiscrimination.....................................................................................................9III. BillS-3,AnActtoamendtheIndianAct(eliminationofsex-basedinequitiesinregistration)..10IV.McIvorPetition.......................................................................................................................14V. Conclusion...............................................................................................................................14VI. Recommendations..................................................................................................................15

TheSocialandEconomicConditionsofIndigenousWomenandGirls(Articles2and5).........15I. CERDCommittee’sConcernsandPreviousRecommendations.................................................15II. DeterioratingSocio-EconomicConditionsofIndigenousWomenandGirls..............................16III. Conclusion...............................................................................................................................22IV. Recommendations..................................................................................................................22

MurdersandDisappearancesofIndigenousWomenandGirls(Article5)..............................23I. CERDCommittee’sConcernsandPreviousRecommendations.................................................23II. CEDAWandInter-AmericanCommissiononHumanRights(IACHR)Reports............................24III. TheNationalInquiry:ImplementationofoneCEDAWandIACHRrecommendation................25a. Norequirementtouseahumanrightsframework...................................................................25b. Noexplicitreferencetopoliceandthecriminaljusticesystem................................................26c. Nomechanismforindependentreviewofcases.......................................................................27d. Currentstateofcollapse............................................................................................................27

IV. StatusUpdateonImplementationofCEDAWReportrecommendations.................................28a. CEDAWRecommendation:EnsurethatallcasesofmissingandmurderedIndigenouswomenaredulyinvestigatedandprosecuted...............................................................................................28

i.Noconsistentandreliabledatacollection.................................................................................................28ii.Nostandardized,co-ordinatedprotocolsforallpoliceforcestofollowwhenIndigenouswomenandgirlsarereportedmissing.............................................................................................................................29iii.NoconsistentstandardofconductthatistransparentandenforceableforpolicewhenengagedwithIndigenouswomenandgirls.........................................................................................................................30


b. CEDAWRecommendation:TakecomprehensivemeasurestosignificantlyimprovethesocioeconomicconditionsoftheIndigenouscommunity,includingtheconditionsaffectingIndigenouswomenbothon-andoff-reserve....................................................................................30

i. Nocoherentplanorstrategy..............................................................................................................30ii. Budgetaryallocationsunclear.............................................................................................................30

c. CEDAWRecommendation:TakespecificmeasurestobreakthecircleofdistrustbetweentheauthoritiesandtheIndigenouscommunity,improveavenuesofcommunicationandengageinameaningfuldialoguewithrepresentativesoftheIndigenouscommunity........................................31

i.PolicebrutalityagainstIndigenouswomenandgirls.................................................................................31ii.Inadequatepolicecomplaintsprocesses..................................................................................................33

V. Recommendations..................................................................................................................34VI. RecentUNTreatyBodyCommentsonMurdersandDisappearances.......................................35a. HumanRightsCommittee(2015)..............................................................................................35b. CommitteeonEconomic,SocialandCulturalRights(2016)......................................................36c. CommitteeontheEliminationofDiscriminationagainstWomen(2016).................................36

VII.IACHRFollow-UpHearingsonMurdersandDisappearances....................................................37VIII.Conclusion.............................................................................................................................38IX. Recommendations..................................................................................................................39

ExclusionofIndigenousWomen'sOrganizationsfromNationtoNationTalks(Articles2and5ofCERD,Articles18,22and44ofUNDRIP)............................................................................40

I. NewFederalGovernment........................................................................................................40II. CanadaendorsestheUNDeclarationontheRightsofIndigenousPeoples(UNDRIP)...............40III. IndigenousWomen'sOrganizationsExcludedfromNation-to-NationFramework...................40IV. Recommendations..................................................................................................................41

RacializedWomenandEmployment(Article5).....................................................................42I. CERDCommittee’sConcernsandPreviousRecommendations.................................................42II. WageInequality......................................................................................................................42III. PayEquity...............................................................................................................................43IV. Part-time,Casual,PrecariousWork.........................................................................................44V. CareGivers..............................................................................................................................45VI. Recommendations..................................................................................................................48

AccesstoJusticeforIndigenousandRacializedWomen(Article6)........................................48I. CERDCommittee’sConcernsandPreviousRecommendations.................................................48II. LegalAid..................................................................................................................................49a. ChronicUnderfunding................................................................................................................49b. EligibilityRequirements.............................................................................................................50c. LackofprotectionincasesofdomesticviolencewhereIndigenouswomenareaffected.......51

III. Recommendations..................................................................................................................51

IndigenousandRacializedWomeninDetention(Articles2,5,and7)....................................52I. CERDCommittee’sConcernsandPreviousRecommendations.................................................52II. LibertyandSecurityofthePerson...........................................................................................52III. Over-incarcerationofRacializedWomen.................................................................................53IV. TreatmentofWomenPrisoners...............................................................................................55V. MalePrisonStaff.....................................................................................................................56VI. Segregation(SolitaryConfinement).........................................................................................56


VII.ImprisonedWomenwithMentalHealthIssues.......................................................................59VIII.Conclusion.............................................................................................................................60IX. Recommendations..................................................................................................................61

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IntroductionTheCanadianFeministAllianceforInternationalAction(FAFIA)isanallianceofmorethansixtyCanadianwomen’sorganizationsthatwasfoundedinFebruary1999.OneofthecentralgoalsofFAFIAistoensurethatCanadiangovernmentsrespect,protect,andfulfillthecommitmentstowomenthattheyhavemadeunderinternationalhumanrightstreatiesandagreements,includingtheConventionontheEliminationofallFormsofRacialDiscrimination.Asabroadallianceofwomen’sorganizations,FAFIAiscommittedtoadvancingthehumanrightsofallwomen,andtocombatingracismandracistpracticesinCanada.Theconditionsandexperiencesofwomenwhoexperienceracismandracialdiscriminationaretoooftenoverlooked,bothinaccountofthesituationofwomenandinaccountofthesituationofracializedminorities.FAFIAhasworkedintensivelyinrecentyearsonissuesspecificallyrelatedtothehumanrightsofIndigenouswomenandgirlsinCanada.

AcknowledgementsThisisacollaborativereportpreparedwiththeNativeWomen'sAssociationofCanada,theCanadianAssociationofElizabethFrySocieties,andDr.PamelaPalmater,ChairinIndigenousGovernanceatRyersonUniversity.Thankstothemforcollegiality,andthecontributionoftheirexpertise.FAFIAalsothanksShelaghDay,LaraKoernerYeo,Dr.PamelaPalmater,SenatorKimPate,AnneLevesque,SuzieDunn,LeilaEdwards,IsabelDávila,AnastasiaToma,andMeganFultzfortheircontributiontothisreport.

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ContactInformationShelaghDay,Chair,HumanRightsCommitteeCanadianFeministAllianceforInternationalAction251BankStreet,2ndFloorOttawa,ONK1P1X3Tel:+1(604)872-0750Web:www.fafia-afai.org//@fafiaafaiEmail:shelagh.day@gmail.comDr.PamelaD.PalmaterChairinIndigenousGovernanceDepartmentofPoliticsandPublicAdministrationFacultyofArts,RyersonUniversity350VictoriaStreetJOR812Toronto,ONM5B2K6Tel:+1(416)979-5000(ext.2047)Web:www.ryerson.ca/chair-indigenous-governanceEmail:ppalmater@politics.ryerson.caCanadianAssociationofElizabethFrySocietiesDianaMajury,President701-151SlaterStreetOttawa,ONK1P5H3Tel:+1(613)238-2422Web:www.caefs.ca

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InequitableaccesstoessentialservicesforFirstNationschildren(Articles1(4),2,and5)

I. ConventionontheEliminationofallFormsofRacialDiscrimination(CERD)Committee’sConcernsandPreviousRecommendations

InitslastconcludingobservationsregardingCanada,theCERDCommitteerecommendedthatCanada,inconsultationwithAboriginalpeoples,implementandreinforceitsexistingprogrammesandpoliciestobetterrealizetheeconomic,socialandculturalrightsofAboriginalpeoples.1Inparticular,itrecommendedthatCanadaendeavourtofacilitatetheiraccesstohealthservicesanddiscontinuingtheremovalofAboriginalchildrenfromtheirfamiliesandprovidingfamilyandchildcareservicesonreserveswithsufficientfunding[…]2

II. ConcernsRaisedinGeneralRecommendationNo23:RightsofIndigenous

Peoples(1997)TheCommittee’s2012concludingobservationsregardingequiatableaccesstoheathservicesandfamilyandchildwelfareservicesforAboriginalpeoplesareconsistentwithGeneralRecommendationNo23,whichemphasizestheimportanceofactivelycombatingdiscriminationagainstIndigenouspeoples.Inparticular,GeneralRecommendationNo23callsonStatespartiesto“ensurethatmembersof[Indigenous]peoplesarefreeandequalindignityandrightsandfreefromanydiscrimination,inparticularthatbasedon[Indigenous]originoridentity”.3

III. TheLackofCulturallyAppropriateChildWelfarePreventionServicesIndigenouschildrenaredramaticallyoverrepresentedinthechildwelfaresysteminCanada,withasignificantlydisproportionatenumberofIndigenouschildrenbeingtakenfromtheirhomesandplacedinnon-Indigenoushomes.Recentstudiesindicatethat48%ofthe30,000childrenandyouthinthefostercaresystemacrossCanadaareIndigenous,notwithstanding

1UNCERD,80thSess,ConcludingObservationsoftheCommitteeontheEliminationofRacialDiscrimination:Canada,UNDocCERD/C/CAN/CO/19-20(2012)atparas19(d),(f).2UNCERD,80thSess,ConcludingObservationsoftheCommitteeontheEliminationofRacialDiscrimination:Canada,UNDocCERD/C/CAN/CO/19-20(2012)atparas19(d),(f).3UNCERD,51stSess,GeneralRecommendation23:RightsofIndigenousPeoples,UNDocA/52/18,AnnexV(1997)atparas1,4(b),reprintedinCompilationofGeneralCommentsandGeneralRecommendationsAdoptedbyHumanRightsTreatyBodies,UNDocHRI/GEN/1/Rev.6(2003).

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thatIndigenouspeoplesaccountforonly4.3%oftheCanadianpopulation.4Infact,therearemoreIndigenouschildreninfostercaretodaythanattheheightoftheresidentialschoolera.5TheeffectsofresidentialschoolsandtheSixtiesScoophaveadverselyaffectedparentingskillsandthesuccessofmanyIndigenousfamilies.AsrecentlynotedbytheTruthandReconciliationCommission(TRC):“Thesefactors,combinedwithprejudicialattitudestowardsAboriginalparentingskillsandatendencytoseeAboriginalpovertyasasymptomofneglect,ratherthanasaconsequenceoffailedgovernmentpolicies,haveresultedingrosslydisproportionateratesofchildapprehensionamongAboriginalpeople”.6TheprimaryjustificationsgivenbychildwelfareauthoritiesfortheapprehensionofIndigenouschildrenare‘physicalneglect’andthe‘failuretosupervise’,whicharehighlycorrelatedwithpoverty,poorhousing,andcaregiversubstancemisuse.7TheresultisthatIndigenouschildrenarebeingforciblyremovedfromtheirfamiliesbecausetheirfamiliesarepoor.TheremovalofIndigenouschildrenalsohasdevastatingeffectsontheirmothers.TheapprehensionofchildrenisoftenpartofaviciouscircleofharmfuleventsexperiencedbypoorIndigenouswomen.Thiscircleincludesinadequateincomeassistance,maleviolence,lossofhousing,lackofaccesstotimelyandappropriatelegalaid,removalofchildren,anddepression/addiction.8OnceanIndigenouswomaniscaughtinthiscircle,oneharmfuleventislikelytoleadtoanother.

IV. TheIntersectionofViolenceAgainstIndigenousWomenandGirlsandtheChildWelfareSystem

Indigenouswomenandgirlsaresignificantlyoverrepresentedasvictimsofcrime.Additionally,theyaremorelikelythanotherwomentoexperienceriskfactorsforviolenceandare

4StatisticsCanada,SelectedDemographic,IncomeandSocioculturalCharacteristics,IncomeStatisticsin2010andIncomeSourcesforthePopulationAged15YearsandOverinPrivateHouseholdsofCanada,Provinces,Territories,CensusMetropolitanAreaandCensusAgglomerations,2011NationalHouseholdSurvey(Ottawa:StatisticsCanada,2011),citedinCanada’sPremiers,AboriginalChildreninCare:ReporttoCanada’sPremiers,bytheAboriginalChildreninCareWorkingGroup(Ottawa:CounciloftheFederation,2015)at7.5LaurenPelley,“IndigenousChildrenRemovedfromHomesinthe1960sBegintoHeal”,TheTorontoStar(2November2015),online:<https://www.thestar.com/news/canada/2015/11/02/indigenous-children-removed-from-homes-in-the-1960s-just-now-beginning-to-heal.html>.6TruthandReconciliationCommissionofCanada,HonouringtheTruth,ReconcilingfortheFuture,FinalReportoftheTruthandReconciliationCommissionofCanada,vol1(Toronto:JamesLorimer&Company,2015)at138.7NicoTrocmé,DellaKnoke&CindyBlackstock,“PathwaystoOverrepresentationofAboriginalChildreninCanada’sChildWelfareSystem”(2004)78:4SocialScienceRev578.8GwenBrodskyetal,“AdvancingtheRightsofPoorWomen:TheViciousCircle”(2010)PovertyandHumanRightsCentreat4,online:<http://povertyandhumanrights.org/wp-content/uploads/2012/11/The-Vicious-Circle-Report.pdf>.

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disproportionatelyyoung,poor,unemployed,andhavelikelybeeninvolvedwiththechildwelfaresystem9whichoftenfailstoadequatelycareforIndigenousgirls.OnAugust17,2014,thebodyof15yearoldTinaFontainewasfoundintheRedRiverinWinnipeg,Manitoba.HerdeathputaspotlightnotonlyontheneedforaninquiryintomissingandmurderedIndigenouswomenandgirls,butalsoonthefailureofthechildwelfaresystemtoprotectIndigenousgirlsbeingcaredforoutsideoftheirhomes.TinawasbeingcaredforbyManitoba’sChildandFamilyServicesandhadbeenplacedinafosterhomebeforegoingmissing.10Policereportsindicatethatshehadahistoryofrunningawayfromherfosterhomeandmediareportssuggestthatthechildwelfareagencyinchargeofhercaredidnotknowofherwhereaboutsforperiodspriortohermurder.Tina’sstoryunderscorestherealityformanyIndigenousgirlsincare:theyaretakenfromtheirfamiliesasaresultofpovertyandtheintergenerationalimpactsoftheresidentialschooleraandtheSixtiesScoop.Theyareoftenplacedinnon-Indigenoushomes,wherefosterparentsandchildwelfareagencieshaveaninabilitytoprovidethemwithculturallyappropriateservicesoranappropriateculturalcontext.Thegirlsarealienatedfromtheirculture,identity,andcommunity.Inevitably,thesegirlsflee(indefinitelyorforperiodsoftime)andbecomeinvolvedbehavioursandactivitiesthatmakethemvulnerabletoexploitation,includingdruguse,sexwork/prostitution,andtrafficking:

Many[Indigenous]firstpointofentryintothecriminaljusticesystemisachargeforanoffencecommittedwithinacarefacility.Girlsmaybechargedwithassaultonastaffmemberorother‘violent’offenceandarethenremandedtodetentioncentres,wheretheycomeintocontactwithsexuallyexploitedyouthandrecruiters…Giventhehighrateofapprehensionof[Indigenous]children,theiroverrepresentationinthechildwelfaresystemleadstotheiroverrepresentationinthecriminaljusticesystem,whichinturnfacilitatestheirentryintoprostitution.11

Indigenouskinplacementsareoftennotanoption.Insomeprovinceskindonotreceivethesameleveloffinancialsupportasfosterparents,makingitdifficultforalreadymarginalizedcommunitiestosupporttheirchildren.12Moreover,manyIndigenouspeoplesdonotwantto

9TruthandReconciliationCommissionofCanada,HonouringtheTruth,ReconcilingfortheFuture,FinalReportoftheTruthandReconciliationCommissionofCanada,vol1(Toronto:JamesLorimer&Company,2015)at180.10CBCNewsManitoba,“TinaFontaine,15,FoundinBaginRedRiver”,CBCNews(17August2014),online:<http://www.cbc.ca/news/canada/manitoba/tina-fontaine-15-found-in-bag-in-red-river-1.2739141>.11AnetteSikka,TraffickingofAboriginalWomenandGirlsinCanada,AboriginalPolicyResearchSeries(Ottawa:InstituteonGovernance,2009)at9.12GretchenPerry,MartinDaly&JenniferKotler,“PlacementStabilityinKinshipandNon-KinFosterCare:ACanadianStudy”(2012)34ChildandYouthServicesRev460at460.

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engagewiththechildwelfaresystemasfosterparents,giventheirtypicallynegativeexperienceswithresidentialschoolandtheSixtiesScoop.13MoreresearchisneededtoexploreandunderstandtheintersectionofviolenceagainstIndigenouswomenandgirlsbutexistingresearchsuggestsadevastatinglinkbetweenthelargenumbersofmissingandmurderedIndigenouswomenandgirlsandthemanyharmfulbackgroundfactorsintheirlives,includingtheiroverrepresentationinthechildwelfaresystem.14

V. OngoingfailuretocomplywithaCanadianHumanRightsTribunalorderinganendtosuchdiscrimination(Article6)15

ThefederalgovernmentfundsFirstNationschildandfamilyservicesonreservethroughtheDepartmentofIndigenousandNorthernAffairs(INAC),whichwaspreviouslyknownastheDepartmentofAboriginalAffairs.INACrequiresthatFirstNationschildandfamilyservicesagenciesonreservecomplywithprovincial/territorialchildwelfarelawsasaconditionoffunding.Pursuanttoitsownstatedobjectives,theFirstNationsChildandFamilyServicesProgram(FNCFSProgram)istoprovideforchildwelfareservicesonreservethatarereasonablycomparabletothoseprovidedoffreserveandareculturallyappropriate.OnJanuary26,2016,theCanadianHumanRightsTribunal(CHRT)releaseditsdecisiononthecomplaintfiledagainstthefederalgovernmentinrelationtotheFNCFSProgram.16ItfoundthattheCanadiangovernmentisraciallydiscriminatingagainst165,000FirstNationschildrenandtheirfamiliesbyprovidingflawedandinequitablechildwelfareservices.ThekeyfindingsoftheCHRTwere:

• TheFNCFSProgramisdiscriminatoryandpromotesnegativeoutcomesforIndigenouschildrenandfamilies.17

• TheFNCFSProgramprovidesanincentivetoremovechildrenfromtheirhomesasafirstresortratherthanalast.18

• TheGovernmentofCanada’s“one-sizefitsall”approachtochildwelfareservicesdoesnotworkforchildrenandfamilieslivingonreserves.19

13ViktoriaIvanova&JasonBrown,“StrengthsofAboriginalFosterParents”(2011)20:3JofChild&FamilyStudies279at279.14TruthandReconciliationCommissionofCanada,HonouringtheTruth,ReconcilingfortheFuture,FinalReportoftheTruthandReconciliationCommissionofCanada,vol1(Toronto:JamesLorimer&Company,2015)at180.15FAFIAthanksSarahClarke,AnneLevesque,DavidTaylorandSébastienGrammondfortheiranalysisandstaunchcommitmenttoadvocateonbehalfofIndigenouschildreninCanada.16FirstNationsChildandFamilyCaringSocietyofCanadavAttorneyGeneralofCanada(representingtheMinisterofIndianandNorthernAffairsandNorthernDevelopmentCanada),2016CHRT2.17Ibidatpara344.18Ibidatpara344.19Ibidatpara315.

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• TheFNCFSProgramcontainsnomechanismtoensurechildandfamilyservicesprovidedtoIndigenousPeopleslivingonreservesarereasonablycomparabletotheseprovidedtochildreninsimilarcircumstancesoffreserve.20

• TheFNCFSProgramcausesIndigenouschildrenandfamiliestobedeniedtheopportunitytoremaintogetherorbereunitedinatimelymanner.21

• TheFNCFSProgramisnotculturallyappropriateanddidnotmeettherealneedsofIndigenouschildrenandtheirfamiliesnortakeintoaccounttheirhistorical,culturalandgeographicalcircumstances.22

TheCHRTorderedtheGovernmentofCanadatoimmediatelyceasediscriminatingagainstIndigenouschildrenandtheirfamiliesandtoensurethatIndigenouschildrenarenolongerdeniedservicesprovidedtootherCanadiansasaresultofjurisdictionaldisputesbetweenandwithingovernments.23Atpresent,Canadahasfailedtocomplywiththedecision.Infact,governmentdocumentsindicatethatCanada’scurrentbudgetforitsFNCFSProgrampre-datesthedecisionandthatCanadadidnotmodifythisfundingfollowingthereleaseofthedecision.InlightofCanada’snon-compliancewiththedecision,theCanadianHumanRightsTribunalhasreleasedthreesubsequentdecisionsorderingCanadatocomplywithitsrulingandtoceaseitsraciallydiscriminatoryconductagainstFirstNationschildren.24InaMay2017order,theTribunalstatedthat“CanadahasrepeateditspatternofconductandnarrowfocuswithrespecttoJordan’sPrinciple”andissuedathirdsetofcomplianceorders.25InJune2017,itwasrevealedthatCanadahasspentnearlyonemilliondollarsinlegalfeesseekingtoavoiditscompliancewiththeCanadianHumanRightsTribunaldecision.26OnJune23,2017,justtwodaysafterNationalAboriginalDay,CanadafiledanoticeofapplicationbeforetheFederalCourtofCanadainwhichitseekstoquashthemostrecentorderoftheCanadianHumanRightsTribunalinthecase.2720Ibidatpara334.21Ibidatpara349.22Ibidatpara465.23Ibidatpara474.24FirstNationsChildandFamilyCaringSocietyofCanadavAttorneyGeneralofCanada(representingtheMinisterofIndianandNorthernAffairsandNorthernDevelopmentCanada),2016CHRT10;FirstNationsChildandFamilyCaringSocietyofCanadavAttorneyGeneralofCanada(representingtheMinisterofIndianandNorthernAffairsandNorthernDevelopmentCanada),2016CHRT16;FirstNationsChildandFamilyCaringSocietyofCanadavAttorneyGeneralofCanada(representingtheMinisterofIndianandNorthernAffairsandNorthernDevelopmentCanada),2017CHRT7;FirstNationsChildandFamilyCaringSocietyofCanadavAttorneyGeneralofCanada(representingtheMinisterofIndianandNorthernAffairsandNorthernDevelopmentCanada),2017CHRT14.25FirstNationsChildandFamilyCaringSocietyofCanadavAttorneyGeneralofCanada(representingtheMinisterofIndianandNorthernAffairsandNorthernDevelopmentCanada),2017CHRT14.26TanyaTalaga,“OttawaSpent$707,000inLegalFeesFightingDecisionthatProtectsIndigenousChildren”,TheTorontoStar(2June2017),online:<https://www.thestar.com/news/canada/2017/06/02/ottawa-spent-707000-in-legal-fees-fighting-a-rights-decision-that-protects-indigenous-children.html>.27CaringSocietyvCanada,(23June2017),Federal,FCTDT-918-17(noticeofapplication),online:

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Inthemeantime,FirstNationschildrenandFirstNationsgirls,inparticular,continuetoexperiencethetragicconsequencesofCanada’sraciallydiscriminatoryconduct.Itisnoexaggerationtosaythattheimpactisdeadly.SinceJanuary2017,three12year-oldgirlsfromtheNorthernOntariancommunityofWapekekahavelosttheirlivesduetosuicide.28AccordingtothecontestedevidencefiledbytheNishnawbeAskiNationtotheCanadianHumanRightsTribunal,thesedeathscouldhavebeenavailablehadappropriatementalhealthservicesbeenavailableforthesegirls.29

VI. RecommendationsTheGovernmentofCanadashould:

• WithdrawitsJune23rd,2017applicationforjudicialreviewofthedecisionoftheCanadianHumanRightsTribunalthataffirmstheequalityrightsof165,000FirstNationschildren.

• ImmediatelycomplywithallotherordersmadebytheCanadianHumanRightsTribunalwithregardstotheequalityrightsofFirstNationschildren.

Thefederal,provincial,territorial,andIndigenousgovernmentscommittoreducingthenumberofIndigenouschildrenincareby:

• Monitoringandassessingneglectinvestigations.• ProvidingadequateresourcestoenableIndigenouscommunitiesandchild-welfare

organizationstokeepIndigenousfamiliestogetherwhereitissafetodoso,andtokeepchildreninculturallyappropriateenvironments,regardlessofwheretheyreside.

• ImplementJordan’sPrinciplesothatallIndigenouschildrenhaveaccesstothesameservicesasallCanadianchildren.

Thefederal,provincial,andterritorialgovernmentsshouldreviewallpoliciesandpracticestoidentifyandeliminatethespecificgender-basedharmscausedtoIndigenouswomenandgirlsbycurrentchildwelfarepractice.

<https://fncaringsociety.com/sites/default/files/Notice%20of%20Application%20for%20Judicial%20Review%20-%20June%2023%202017.pdf>.28CBCNewsThunderBay,“WapekekaSuicides:ASurvivorofa‘Pact’SpeaksOut”,CBCNews(30June2017),online:<http://www.cbc.ca/news/canada/thunder-bay/suicide-pact-wapekeka-1.4184438>.29FirstNationsChildandFamilyCaringSocietyofCanadavAttorneyGeneralofCanada(representingtheMinisterofIndianandNorthernAffairsandNorthernDevelopmentCanada),2017CHRT7(Evidence,DrMichaelKirlewAffidavit),online:<https://fncaringsociety.com/sites/default/files/Affidavit%20of%20Dr.%20Michael%20Kirlew.%20FINAL.%20Sworn%20January%2027%202017Reduced.pdf>.

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SexDiscriminationintheIndianAct(Articles2and5)

I. CERDCommittee’sConcernsandPreviousRecommendationsIn2007,theCERDCommitteeurgedCanadato“totakethenecessarymeasurestoreachalegislativesolutiontoeffectivelyaddressthediscriminatoryeffectsoftheIndianActontherightsofAboriginalwomenandchildrentomarry,tochooseone’sspouse,toownpropertyandtoinherit,inconsultationwithFirstNationsorganisationsandcommunities,includingaboriginalwomen’sorganisations,withoutfurtherdelay.30Furthermore,in2012,theCERDCommitteeexpresseditsconcernthatCanadahad“notyetremovedalldiscriminatoryeffectsinmattersrelatingtotheIndianActthataffectFirstNationswomen...31Despitethis,CanadahasnotyetremovedallthesexdiscriminationfromtheIndianAct,32andthisdiscriminationcontinuestoaffectthousandsofFirstNationswomenandtheirdescendants.

II. HistoryofSexDiscrimination

Sinceitsinception,theIndianActhasaccordedprivilegetomaleIndiansandtheirdescendants,andtreatedfemaleIndiansandtheirdescendantsasnon-persons,orsecond-classIndians.In1906,theIndianActdefinedanIndianas:amaleIndian,thewifeofamaleIndian,orthechildofamaleIndian.UndersuccessiveversionsoftheIndianAct,forthemostpart,Indianwomenhadnoindependentstatusorabilitytotransmitstatustotheirdescendants.Therewasaone-parentrulefortransmittingstatusandthetransmittingparentmustbemale.Indianwomenloststatuswhentheymarriedanon-Indian,whileIndianmenendowedIndianstatusontheirnon-Indianwives.33In1985,whentheCharterequalityguaranteeswereabouttocomeintoforce,theGovernmentofCanadaintroducedBillC-31tomakesomeamendments.ButBillC-31didnotremovethemale-femalehierarchy.Infact,itentrencheditbycreatingthecategoryof6(1)(a)formaleIndiansandtheirdescendantswhoalreadyhadfullstatuspriortoApril17,1985,andthelesser6(1)(c)categoryforwomenwhohadneverhadstatusbecauseofthesexdiscrimination,orwho

30UNCERD,70thSess,ConcludingObservationsoftheCommitteeontheEliminationofRacialDiscrimination:Canada,UNDocCERD/C/CAN/CO/18(2007)atpara15.31UNCERD,80thSess,ConcludingObservationsoftheCommitteeontheEliminationofRacialDiscrimination:Canada,UNDocCERD/C/CAN/CO/19-20(2012)atpara18.32IndianAct,RSC1985,c-15.33ShelaghDay,“153yearsofsexdiscriminationisenough”,TheTorontoStar(10Janurary2011)online:<https://www.thestar.com/opinion/editorialopinion/2011/01/10/153_years_of_sex_discrimination_is_enough.html>.

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hadloststatusbecauseofmarriagetoanon-Indian.34Theywereconsidered"re-instatees."Anewtwo-parentrulefortransmittingstatuswasimposedonthefemaleline.Thisruleappliedtothereinstatedwomenimmediately,butwasdelayedforthe6(1)(a)maleline.35Since1985,thedeeplyrootedsexdiscrimination,andtheperpetuationofitbyBillC-31,hasspawnedagenerationoflitigation,includingMcIvorv.Canada,36Matsonv.Canada,37Deschenauxv.AGCanada,38andGehlv.Canada.39NoneofthesecaseswouldhavebeennecessaryifIndianwomenandtheirdescendantshadbeenputonanequalfootingwithIndianmenandtheirdescendantsinBillC-31.BillC-3,AnActtopromotegenderequityinIndianregistration40(whichwasthe2010responseoftheHarpergovernmenttotheMcIvorv.Canadadecision)failed,oncemore,toeliminateallsexdiscriminationintheIndianAct.Itaddressedsomemanifestationsofthesexdiscriminationbyintroducingpiecemealimprovementstothestatusofparticularsub-groups,butlefttheheartofthesexdiscriminationthatisinherentinthe6(1)(a)-6(1)(c)hierarchyinplace.Untilthisfundamentalsexdiscriminationisremoved,costlyandtime-consuminglitigationwillbenecessary,asmoresub-groupsidentifyhowthesexdiscriminationaffectsthem,andchallengeitinthecourts.

III. BillS-3,AnActtoamendtheIndianAct(eliminationofsex-basedinequitiesinregistration)

AfterMcIvorv.Canada,inAugust2015cameadecisionoftheQuebecSuperiorCourtinDeschenauxv.AGCanada.41CanadawasdirectedoncemoretoamendtheIndianActbecauseitdiscriminatesagainstStéphaneDescheneauxandSusanYanthaonthebasisofsex.TheCourtgaveCanadauntilFebruary3,2017,tomakecurativeamendments,42and34BillC-31,AnActtoamendtheIndianAct,RSC1985,c32(1stSupp).35DeniseStonefish,“GenderDiscriminationintheIndianAct”PolicyOptions(25November2016)online:http://policyoptions.irpp.org/magazines/november-2016/gender-discrimination-and-the-indian-act/;LetterfromSharonMcIvortoTheSenateofCanada,TheRightHonourableJustinTrudeau,TheHonourableCarolynBennett,andTheHonourableJodyWilson-Raybould(26May2017)Re:APPA6(1)(a)AmendmenttoBillS-3,online:<http://fafia-afai.org/wp-content/uploads/2017/06/McIvor-letter-May-26.pdf>.36McIvorvCanada,2009BCCA153,91BCLR(4th)1,online:<http://www.courts.gov.bc.ca/jdb-txt/ca/09/01/2009bcca0153err2.htm>.37MatsonvIndianandNorthernAffairsCanada,2013CHRT13.38DescheneauxvCanada(ProcureurGénéral),2015QCCS3555[Descheneaux].39GehlvAttorneyGeneralofCanada,2017ONCA319.40GenderEquityinIndianRegistrationAct,AnActtopromotegenderequityinIndianregistrationbyrespondingtotheCourtofAppealforBritishColumbiadecisioninMcIvorv.Canada(RegistrarofIndianandNorthernAffairs),online:<https://openparliament.ca/bills/40-3/C-3/>.41DescheneauxvCanada(ProcureurGénéral),2015QCCS3555.42PovertyandHumanRightsCentre,PetitionerObservationsinResponsetoCanada’sRequestforSuspensionoftheCommittee’sConsiderationofthePetitionofSharonMcIvorandJacobGrismer,CommunicationNo.2020/2010

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thengrantedanextensionuntilJuly3,2017.43PlaintiffsinDescheneauxappliedforafurthercourtextensionthatwasdenied.TheQuebecCourtofAppealsubsequentlygrantedanextensionuntilAugust9,2017.

Duringthissameperiod,Dr.LynnGehlwassuccessfulinherchallengetotheunstatedpaternitypolicyofIndigenousandNorthernAffairsinGehlv.Canada(AttorneyGeneral),44anadministrativepolicythatrequiredtheidentityofthefatherofachildtobedeclaredandthesignaturesofbothparentstobepresented,otherwisetheRegistrarwouldautomaticallyassumethatthefatherwasnon-Indianandthiswouldaffectthechild'seligibilityforIndianstatus.45ThissexdiscriminationwasnothistoricallyaddressedbyBillC-3,whentheIndianAct’sstatusprovisionswerelastamendedin2010.InresponsetoDeschenauxandtoGehl,theGovernmentofCanadaintroducedBillS-3,AnActtoamendtheIndianAct(eliminationofsex-basedinequitiesinregistration).46LikeC-3BillS-3,asoriginallyintroducedbytheGovernmentofCanada,wasanotherpiecemealamendmentdesigned(despitethepromisingnameoftheBill)toaddressonlythediscriminationidentifiedinDeschenaux,andGehl,butnottoremovethecoreofthesexdiscriminationintheIndianAct,whichisrootedinthesex-basedhierarchybetweens.6(1)(a)ands.(6(1)(c).BillS-3wasconsideredbytheSenateCommitteeonAboriginalPeoples,andinthatCommittee,theSenatorsadoptedanamendment,whichwouldhavetheeffectofeliminatingthesex-basedhierarchybyentitlingIndianwomenandtheirdescendantstofull6(1)(a)statusonthesamefootingwithIndianmenandtheirdescendants.47Dubbedthe"(6(1)(a)allthewayamendment"

(20June2016),online:<http://povertyandhumanrights.org/wp-content/uploads/2016/06/Mcivor-Petitioners-Objection-to-Suspension-Request.pdf>.43OnJune27,2017,theQuebecSuperiorCourtdeniedCanada’srequesttofurtherextendtheJuly3timeline.SeeMichelleZilio,“QuebecSuperiorCourtblocksextensiontofixdiscriminationinIndianAct”GlobeandMail(June29,2017),online<https://www.theglobeandmail.com/news/politics/quebec-superior-court-blocks-extension-to-fix-discrimination-in-indian-act/article35507784/>.44GehlvAttorneyGeneralofCanada,2017ONCA319.45NativeWomen’sAssociationofCanada,“AboriginalWomenandUnstatedPaternity”(PaperdeliveredattheNationalAboriginalWomen’sSummit,20-22June2007)at7,online:<http://www.lynngehl.com/uploads/5/0/0/4/5004954/nwac-paternity.pdf>.SeealsoUNHRC,27thSess,ReportoftheSpecialRapporteurontheRightsofIndigenousPeoples,JamesAnaya:TheSituationofIndigenousPeoplesinCanada,UNDocA/HRC/27/52/Add.2(2014)atpara55,online:<http://unsr.jamesanaya.org/docs/countries/2014-report-canada-a-hrc-27-52-add-2-en.pdf>;IndigenousandNorthernAffairsCanada,“UnstatedPaternityonBirthCertificate:QuickFactsonDocumentationRequired”(12April2012),online:<https://www.aadnc-aandc.gc.ca/eng/1334234251919/1334234281533>.46BillS-3,AnActtoamendtheIndianAct(eliminationofsex-basedinequitiesinregistration),online:<https://openparliament.ca/bills/42-1/S-3/>.47DebatesoftheSenate,42ndParl,1stSess,Vol150,Issue126(1June2017),online:<https://sencanada.ca/en/content/sen/chamber/421/debates/126db_2017-06-01-e>.

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itwaspassedbythefullSenateonJune1,2017.TheSenate'samendedBillS-3wentbacktotheHouseofCommons,wheretheLiberalmajorityofMembersofParliamentstrippedouttheSenate's6(1)(a)allthewayamendmentandreturnedittotheSenate.TheSenateroseforsummerrecesswithoutreconsideringtheBillwithoutitsamendment.BecausetheCourt'sdeadlineforactiononcuringtheunconstitutionaldiscriminationidentifiedinDeschenauxhasnowbeenextendedtoAugust9,2017,itisexpectedthattheSenatemayberecalledduringthesummerrecess,orthatitwillimmediatelyreconsiderBillS-3onitsreturnonSeptember19,2017.TheSenatorsandvirtuallyallthewitnesseswhotestifiedbeforeSenateandHouseofCommonsCommitteesagreedthatBillS-3doesnotremoveallthesexdiscriminationfromtheIndianAct,andthatitwastimetodosowithoutfurtherdelay.48TheGovernmentofCanadacontendedthatfurtherconsultationwasneeded,butmanywitnessespointedoutthatCanadahasbeenconsultingFirstNationscommunitiesaboutIndianActsexdiscriminationsincethe1940sandthatCanadaknowseverythingitneedstoknow.INACofferedtwoargumentstosupporttheunamendedBillS-3.INACagreedthattherearemorewomenandtheirdescendantswhocouldbeentitledtoIndianstatusifIndianwomenbornbeforeApril17,1985weregrantedfull6(1)(a)statusliketheirmalecounterparts.49ButINACofficialsdefendednotputtingthewomenonafootingofequalityonthegroundsthattheyare"balancingindividualandcollectiverights"andareconcernedaboutthereactionofcommunitiestothepotentialneedtoincludemoreIndians.50FAFIAtakesfundamentalexceptiontothisargument.FirstNations,recognizedasIndianbandsundertheIndianAct,andcommunitieshavenolegitimatesayinwhethertheGovernmentofCanadacontinuestodiscriminateagainstIndianwomenbecauseoftheirsex.Infact,theGovernmentofCanadahasanobligationunderconstitutionalandinternationallaw,aswellafiduciarydutynottodiscriminateonthebasisofsex,whetherIndigenousFirstNationsandcommunitiesagreeornot.Aboriginalandtreatyrightsgrantedundersection35oftheCanadianconstitution51mustnotdiscriminatebasedongender.Additionally,theUnitedNationsDeclarationontheRightsofIndigenousPeoplesstatesthatallAboriginalrightsand

48Canada,Parliament,Senate,StandingCommitteeonAboriginalPeoples,Evidence,42ndParl,41stSess,No13(23November2016),online:<https://sencanada.ca/en/Content/Sen/committee/421/appa/52929-e>.49Canada,Parliament,Senate,StandingCommitteeonAboriginalPeoples,Evidence,42ndParl,41stSess,No13(29November2016),a6t14:26,online:<https://sencanada.ca/en/Content/SEN/Committee/421/appa/14ev-52958-e>;LetterfromSharonMcIvortoTheSenateofCanada,TheRightHonourableJustinTrudeau,TheHonourableCarolynBennett,andTheHonourableJodyWilson-Raybould(26May2017)Re:APPA6(1)(a)AmendmenttoBillS-3,online:<http://fafia-afai.org/wp-content/uploads/2017/06/McIvor-letter-May-26.pdf>.50Canada,Parliament,Senate,StandingCommitteeonAboriginalPeoples,Evidence,42ndParl,41stSess,No14(6December2016),at14:60,online:<https://sencanada.ca/Content/SEN/Committee/421/APPA/pdf/14issue.pdf>.51TheConstitutionAct,1982,ScheduleBtotheCanadaAct1982(UK),1982,c11.

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Indigenouslawmustnotdiscriminatebasedongender.52Most,ifnotall,IndigenousFirstNationsandcommunitiesdonotwishtoseediscriminationonthebasisofsexcontinue.53Further,statusandbandmembershipwereseparatedintheIndianActin1985,andIndianstatusisarelationshipbetweenindividualIndigenouspersonsandthefederalgovernment.BandmembershipinvolvesseperateissuesandentitlementsfromIndianstatusandisdeterminedbythecommunitiesbythemselves,iftheysochoose.TheGovernmentofCanadacanremovethesexdiscriminationfromthestatusprovisions.Followingthisremoval,itcanthenlegitimatelyconsultabouttheresourcesandservicesneededtoensurethatcommunitiescanincludenewmembers,andabouthowtheywishtodealwiththeirownmembershipissues.ThereisnoneedforfurtherdelaysinordertoconsultonwhetheritwilleliminatesexdiscriminationfromthestatusprovisionsoftheAct.ThisisalegalobligationtowhichCanadamustcomplywithoutdelay.Further,thewomenandtheirdescendantswhoareexcludedfromIndianstatusbecauseofsexdiscriminationhaveboththeindividualrighttoequalityandthecollectiverighttoberecognizedequallyasmembersoftheircommunities,andtoparticipateinpromisednation-to-nationtalks.Ifthewomenandtheirdescendantsarenotrecognizedbecauseofcontinuingsexdiscrimination,theyarerobbedoftheirrightstocultureandtoparticipateindecision-makingregardinglandsandresources.ContinuingthesexdiscriminationmeansthatthepoolofIndigenousPeopleswithwhomtheGovernmentofCanadawillnegotiateanewNation-to-Nationrelationshipwillbediminishedanddistortedbysexdiscrimination.ItwasalsopointedoutbySenatorsandwitnessesthatboththeIACHRreport54andtheCEDAWCommitteeReport55onmissingandmurderedIndigenouswomenandgirlsfoundthatsexdiscriminationintheIndianActwasarootcauseofthecrisisofviolence.BothexpertbodiesrecommendedthatCanadaeliminatethediscriminationimmediately.FAFIAisdeeplydisturbedthatatamomentwhenanewLiberalGovernmenthasmadeapubliccommitmenttowomen'sequality,hasaPrimeMinisterwhocallshimselfafeminist,andwishestoestablishanewnation-to-nationrelationshipwithIndigenouspeoples,thatsameGovernmentrefusestoremovethesexdiscriminationfromtheIndianActthatcontinuesto

52PamelaPalmater,IndigenousNationhood:EmpoweringGrassrootsCitizens(BlackPoint,NovaScotia:FernwoodPublishing,2015).53UnitedNationsDeclarationontheRightsofIndigenousPeoples,A/RES/61/295atart44,(enteredintoforce:13September2007),online:<http://www.un.org/esa/socdev/unpfii/documents/DRIPS_en.pdf>.54OAS,Inter-AmericanCommissiononHumanRights,MissingandMurderedIndigenousWomeninBritishColumbia,Canada,OEA/Ser.L/V/II.Doc.30/14(2014)atparas68-69,93,129,online:<http://www.oas.org/en/iachr/reports/pdfs/indigenous-women-bc-canada-en.pdf>.55UNCEDAW,ReportoftheInquiryConcerningCanadaoftheCommitteeontheEliminationofDiscriminationAgainstWomenUnderArticle8oftheOptionalProtocoltotheConventionontheEliminationofAllFormsofDiscriminationAgainstWomen,UNDocCEDAW/C/OP.8/CAN/1(2015)at51,paraX(C)(v),onlineat:<http://tbinternet.ohchr.org/Treaties/CEDAW/Shared%20Documents/CAN/CEDAW_C_OP-8_CAN_1_7643_E.pdf>.

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excludethousandsofIndigenouswomenandtheirdescendantsfromentitlementtoIndianstatus,orconsignsthemtoasecond-classcategoryofstatus.

IV. McIvorPetitionAsaresultofBillC-3’sdeficiencies,SharonMcIvorfiledapetitionwiththeUNHumanRightsCommittee(McIvorv.Canada(CommunicationNo.2020/2010),claimingthatthecontinuingsexdiscriminationviolatestheInternationalCovenantonCivilandPoliticalRights.56TheexchangeofsubmissionsbetweenCanadaandMs.McIvorwascompletedin2012.Since2012,therewasnoactiononMs.McIvor’sfileuntilMay9,2016,whenCanadarequestedthattheUNHumanRightsCommitteesuspenditsconsiderationofherpetitiononthegroundsthatitwasintendingtoamendtheIndianActtoremoveallknownsexdiscrimination.57Atthesametime,Canadastatedthat,ifitsrequesttotheCommitteewasnotgranted,itmaintainedthatnoremedyshouldbegrantedtoMs.McIvor.Canadamadeasecondrequestaskingforafurtherextensionofthesuspension.58TheCommitteegrantedCanada’srequestsandsuspendedconsiderationoftheMcIvorpetitionuntilMarch2017.59

V. ConclusionCanadarefusestoacttoremovesexdiscriminationfromtheIndianAct,eventhoughithasbeenurgedtodosorepeatedlybyUnitedNationstreatybodies,andeventhoughthisdiscriminationhasbeenidentifiedasarootcauseofthehumanrightscrisisofmurdersanddisappearancesofIndigenouswomenandgirls.Indigenouswomenhavebeenfightingtoendthissexdiscriminationformorethanfiftyyears,itistimeforCanadatoendthisdiscrimination.

56ThePovertyandHumanRightsCentre,“McIvorvCanada”(19August2011),online:<http://povertyandhumanrights.org/2011/08/mcivor-v-canada/>.57PovertyandHumanRightsCentre,PetitionerObservationsinResponsetoCanada’sRequestforSuspensionoftheCommittee’sConsiderationofthePetitionofSharonMcIvorandJacobGrismer,CommunicationNo.2020/2010(20June2016),atpara3,online:<http://povertyandhumanrights.org/wp-content/uploads/2016/06/Mcivor-Petitioners-Objection-to-Suspension-Request.pdf>.58PovertyandHumanRightsCentre,ThirdSupplementalSubmissionoftheGovernemntofCanadaontheAdmissabilityandMeritsoftheCommunicationtotheHumanRightsCommitteeofSharonMcIvorandJacobGrismerCommunicationNo.2020/2010(28Feburary2017)atpara38.online:<http://povertyandhumanrights.org/wp-content/uploads/2017/03/Canadas-Third-Supplemental-Submission28022017.docx>.59Ibidatpara5.

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VI. Recommendations

TheGovernmentofCanadashould:• ImplementtheCEDAW,HumanRightsCommittee,andCERDrecommendationsto

eliminatesexdiscriminationfromthestatusprovisionsoftheIndianAct.• AmendtheIndianActimmediatelytoremoveallsexdiscriminationandensurethats.

6(1)(a)ofthestatusregistrationregime,introducedbythe1985IndianAct,andre-enactedbytheGenderequityinIndianRegistrationAct(BillC-3),isinterpretedoramendedsoastoentitletoregistrationunders.6(1)(a)thosepersonswhowerepreviouslynotentitledtoberegisteredunders.6(1)(a)solelyasaresultofthepreferentialtreatmentaccordedtoIndianmenoverIndianwomenbornpriortoApril17,1985,andtopatrilinealdescendantsovermatrilinealdescendants,bornpriortoApril17,1985.

TheSocialandEconomicConditionsofIndigenousWomenandGirls(Articles2and5)

I. CERDCommittee’sConcernsandPreviousRecommendationsTheCERDCommitteenoteditsconcernsaboutthedisadvantagedconditionsofIndigenouspeoplesinbothits200760and2012ConcludingObserations,andmadespecificreferencetosafedrinkingwater,employment,healthservices,housing,education,andchildwelfare.61GeneralRecommendationNo23:RightsofIndigenousPeoples(1997)alsoincludedthefollowingrecommendation:

(c)ProvideIndigenouspeopleswithconditionsallowingforasustainableeconomicandsocialdevelopmentcompatiblewiththeirculturalcharacteristics;62

TheCEDAWCommitteeinits2016ConcludingObservationsonCanadamadethefollowingrecommendation:

60UNCERD,70thSess,ConcludingObservationsoftheCommitteeontheEliminationofRacialDiscrimination:Canada,UNDocCERD/C/CAN/CO/18(2007)atpara21.61UNCERD,80thSess,ConcludingObservationsoftheCommitteeontheEliminationofRacialDiscrimination:Canada,UNDocCERD/C/CAN/CO/19-20(2012)atpara19.62UNCERD,51stSess,GeneralRecommendation23:RightsofIndigenousPeoples,UNDocA/52/18,AnnexV(1997)atpara4(c),reprintedinCompilationofGeneralCommentsandGeneralRecommendationsAdoptedbyHumanRightsTreatyBodies,UNDocHRI/GEN/1/Rev.6(2003).

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Developaspecificandintegratedplanforaddressingtheparticularsocioeconomicconditionsaffecting[Indigenous]women,bothonandoffreserves,includingpoverty,poorhealth,inadequatehousing,lowschoolcompletionrates,lowemploymentrates,lowincomeandhighratesofviolence,andtakeeffectiveandproactivemeasures,includingcampaignstoraiseawarenesswithin[Indigenous]communitiesaboutwomen’shumanrightsandtocombatpatriarchalattitudesandgenderstereotypes...63

II. DeterioratingSocio-EconomicConditionsofIndigenousWomenandGirls

InCanada,thesocio-economicconditionsofIndigenouspeoplesgenerally,andIndigenouswomenandgirlsspecifically,areextremelypoor.FormerSpecialRapporteurontherightsofIndigenouspeoples,JamesAnaya,concludedinhis2014reportonCanadathat:“Themostjarringmanifestationofhumanrightsproblemsisthedistressingsocio-economicconditionsof[Indigenous]peoplesinahighlydevelopedcountry”.64Anayaemphasizesthattherehavebeennoimprovementsinthesocio-economicconditionsofIndigenouspeoplessincethelastreportin2004,afindingconfirmedbyCanada’sAuditorGeneral.65

Indigenouspeoplessufferfromalackofaccesstohousing,safedrinkingwaterandsanitation,adequatehealthservices,economicdevelopment,educationandemployment.66IndigenouswomenandgirlsareparticularlydisadvantagedduetoongoingdiscriminationintheIndianActandCanada’srelatedpoliciesandfundingmechanisms,whichoftendisentitlethemfromessentialsocialprograms.67Indigenouswomenandgirlsarealsoparticularlyvulnerabletoabusewithinthiscontextofpoorsocio-economicconditions,whichAnayacategorizedas“acontinuingcrisis”.68

63UNCEDAW,ConcludingObservationsonthe8thand9thPeriodicReportsofCanada,UNDocCEDAW/C/CAN/CO/8-9(2016)atpara29(a),online:<https://documents-dds-ny.un.org/doc/UNDOC/GEN/N16/402/03/PDF/N1640203.pdf?OpenElement>.64UNHRC,27thSess,ReportoftheSpecialRapporteurontheRightsofIndigenousPeoples,JamesAnaya:TheSituationofIndigenousPeoplesinCanada,UNDocA/HRC/27/52/Add.2(2014)atpara15,online:<http://unsr.jamesanaya.org/docs/countries/2014-report-canada-a-hrc-27-52-add-2-en.pdf>;AuditorGeneralofCanada,Report,“StatusReportoftheAuditorGeneralofCanada,Chapter4:ProgramsforFirstNationsonReserves”(June2011)at1-2,online:<http://www.oag-bvg.gc.ca/internet/docs/parl_oag_201106_04_e.pdf>.65Ibid.66PamelaPalmater,“StretchedBeyondHumanLimits:DeathbyPovertyinFirstNations”(2011)No65/66CanadianRevofSocialPolicy112.67IndianAct,RSC1985,c-15;PamelaPalmater,BeyondBlood:RethinkingIndigenousIdentity(Saskatoon:PurichPublishing,2010).68UNHRC,27thSess,ReportoftheSpecialRapporteurontheRightsofIndigenousPeoples,JamesAnaya:TheSituationofIndigenousPeoplesinCanada,UNDocA/HRC/27/52/Add.2(2014)atpara80,online:<http://unsr.jamesanaya.org/docs/countries/2014-report-canada-a-hrc-27-52-add-2-en.pdf>.

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BelowaresomeexamplesofhowthehealthandlivingconditionsofIndigenouswomenandgirlscontinuetodeteriorate:

• Childrenincarecrisis:48%ofchildreninstatecare(fostercare)inCanadaareIndigenous(morethan85%inManitoba);69thenumberofchildrenincarehas“increasedrapidly.”70

• Waterandsanitationcrisis:113+FirstNationsdonothavecleandrinkingwater;7173%ofallwatersystemsand64%ofwastewatersystemsonreservesareatmediumtohighrisk;72somereserveshavebeenunderboilwateradvisoriesforover10years.73

• Housingcrisis:28%ofFirstNationspeopleliveinover-crowdedhousing;43%ofFirstNationhomesareinneedofmajorrepair;74thereisa110,000homebacklogonFirstNationsreserves;75andIndigenouswomenandchildrenarevulnerabletohomelessnessuponmarriagebreakdownduetothefactthatthepossessionofhomesonreservesaremostoftenheldbymen.76

• Healthcrisis:lifeexpectancyforIndigenouspeopleiscurrentlyeightyearslessthannon-IndigenousCanadians;77lifeexpectancyisprojectedtobe5-15yearslessthannon-IndigenousCanadiansin2017;78Indigenouspeoplessufferfromhigherratesofchronic

69StatisticsCanada,“LivingArrangementsofAboriginalChildrenAged14andUnder”,byAnnieTurner,CatalogueNo75-006-X(Ottawa:StatisticsCanada,2016)at1,online:<http://www.statcan.gc.ca/pub/75-006-x/2016001/article/14547-eng.pdf>.70DeenaMandelletal,“PartnershipsforChildrenandFamiliesProject”(WilfredLaurierUniversity,2003)at3,online:<https://legacy.wlu.ca/documents/7179/Aboriginal_child_welfare.pdf>;PamelaGoughetal,“PathwaystotheOverrepresentationofAboriginalChildreninCare”(2005)No23ECentreofExcellenceforChildWelfare1at1,online:<http://cwrp.ca/sites/default/files/publications/en/AboriginalChildren23E.pdf>.71HealthCanada,“DrinkingWaterAdvisories:FirstNationsSouthof60”(2016),online:<http://www.hc-sc.gc.ca/fniah-spnia/promotion/public-publique/water-dwa-eau-aqep-eng.php>.AccordingtoHealthCanadathereare92FirstNationsonboilwateradvisories(inBC,thereareanadditional21FirstNationsonboiladvisories).SeealsoFirstNationsHealthAuthority,“DrinkingWaterSafetyProgram”(2016),online:<http://www.fnha.ca/what-we-do/environmental-health/drinking-water-safety-program>.72NeeganBurnside,“NationalAssessmentofFirstNationsWaterandWastewaterSystems:NationalRoll-UpReportFinal”(2011)atii,online:<https://www.aadnc-aandc.gc.ca/DAM/DAM-INTER-HQ/STAGING/texte-text/enr_wtr_nawws_rurnat_rurnat_1313761126676_eng.pdf>.73HumanRightsWatch,“MakeitSafe:Canada’sObligationtoEndtheFirstNationsWaterCrisis”(2016)at29-39,online:<https://www.hrw.org/sites/default/files/report_pdf/canada0616web.pdf>.74StatisticsCanada,“AboriginalPeoples:FactSheetforCanada”,byKarenKelly-Scott&KristinaSmith,CatalogueNo89-656-X2015001(Ottawa:StatisticsCanada,2015)at4,online:<http://www.statcan.gc.ca/pub/89-656-x/89-656-x2015001-eng.pdf>.75AssemblyofFirstNations,“NationalFirstNationsHousingStrategy”(2010)at1,online:<http://www.afn.ca/uploads/files/housing/afn_national_housing_strategy.pdf>.76PamelaPalmater,“MaritalRealPropertyonFirstNationReserves”(2015)ChairinIndigenousGovernance,RyersonUniversity,online:<http://www.ryerson.ca/chair-indigenous-governance/research-projects/past/matrimonial-real-property/>.77AuditorGeneralofCanada,Report4,“AccesstoHealthServicesforRemoteFirstNationsCommunities”(2015),online:<http://www.oag-bvg.gc.ca/internet/English/parl_oag_201504_04_e_40350.html>.78StatisticsCanada,“LifeExpectancy”(2015),online:<http://www.statcan.gc.ca/pub/89-645-x/2010001/life-expectancy-esperance-vie-eng.htm>.

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andinfectiousdiseases,injuries,substanceabuseandmentalhealthissues;79ratesofheartdiseaseandstrokehavedeclinedinCanada,butcontinuetoincreaseforIndigenouspeoples;80IndigenouswomenhavehigherratesofheartdiseaseandstrokecomparedtoIndigenousmenandnon-Indigenouswomen.81

• Educationcrisis:thegapineducationlevelsbetweenIndigenouspeoplesandnon-Indigenouspeopleiswidening–itwouldtakeatleast28yearstoclosethegap;82morethan9,500Indigenouspeoplesareonawaitinglisttoobtainpost-secondaryeducation;83thenumberofIndigenouspeoplefundedforpost-secondaryeducationhasdecreasedby18.3%since1997;84andtherehavebeendrasticcutstoFirstNationeducationalinstitutesthathavecrippledIndigenouslanguageimmersionprogramsforprimarystudents.85

• Suicidecrisis:FirstNationsuicideratesare2-6timeshigherthanthoseofCanadiansandInuitratesare10timeshigher;8638%ofallIndigenousyouthdeathsarefromsuicide,87three12yearoldgirlsinthetownofWapekekadiedbysuicidein2016;88Indigenouswomenhavehigherratesofsuicideattempts;89someFirstNationshavethehighestsuicideratesintheworld;90andsuicideratesareincreasing.91

79Ibid;HeartandStrokeFoundation,“AboriginalPeoples,HeartDiseaseandStroke:PositionStatement”(2010)at1.80Ibidat3.81HeartandStrokeFoundationofCanada,“Women,HeartDiseaseandStrokeinCanada:IssuesandOptions”(1997)at1,online:<http://data.library.utoronto.ca/datapub/codebooks/utm/canheart/CHH/womanhrt.pdf>.82DonDrummond&EllenRosenbluth,“TheDebateonFirstNationsEducationFunding:MindtheGap”(2013)Queen’sUniversityWorkingPaper49PolicyStudiesat2.83AuditorGeneralforCanada,“ReportoftheAuditorGeneralforCanada:Chapter5:IndianandNorthernAffairsCanada–EducationProgramandPost-SecondaryStudentSupport”(2004)at20,online:<http://www.oag-bvg.gc.ca/internet/docs/20041105ce.pdf>.84JohnTasker,“FewerFirstNationsstudentsreceivingfundsforpost-secondaryeducation”CBCNews(12September2016),online:<http://www.cbc.ca/news/politics/first-nations-cap-higher-education-1.3753021>.85MichaelErskine,“OttawaCutsitsPortionofKenjgewinTegFundsby75%”,ManitoulinExpositor(24August2016),online:<http://www.manitoulin.ca/2016/08/24/ottawa-cuts-portion-kenjgewin-teg-funds-75/>.86AboriginalHealingFoundation,“SuicideAmongAboriginalPeopleinCanada”(2007)at14,online:<http://www.douglas.qc.ca/uploads/File/2007-AHF-suicide.pdf>.87NationalAboriginalHealthOrganization,“Backgrounder:SuicideAmongAboriginalPeopleinCanada”(2008),online:<http://www.naho.ca/media-releases/04_04_2008BG.pdf>.88CBCNewsThunderBay,“WapekekaSuicides:ASurvivorofa‘Pact’SpeaksOut”,CBCNews(30June2017),online:<http://www.cbc.ca/news/canada/thunder-bay/suicide-pact-wapekeka-1.4184438>.89SarahHamid-Balma,ed.,“AboriginalPeople”(2008)5:1Visionsat6,online:<http://www.heretohelp.bc.ca/sites/default/files/visions_aboriginal_people.pdf>.90MartinPatriquin,“Canada,hometothesuicidecapitaloftheworld”,Maclean’s(30March2012),online:<http://www.macleans.ca/news/canada/canada-home-to-the-suicide-capital-of-the-world/>.91LauraEggertson,“AboriginalYouthSuicideRisesinNorthernOntario”(2015)187:11CanadianMedicalAssociationJournalat1,online:<http://www.cmaj.ca/content/187/11/E335.full.pdf+html>;;JodyPorter,“3rdGirlInvolvedinSuicidePactDiesinRemoteOntarioFirstNation”CBCNews(14June2017),online:<http://www.cbc.ca/news/canada/thunder-bay/wapekeka-3rd-suicide-1.4160928>.

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• Prisoncrisis:36%oftheCanadianprisonpopulationisIndigenouswomen;92imprisonmentofIndigenouswomenhasincreased90%inthelastdecade;93incarcerationratesforIndigenousyouthareeighttimeshigherthanforCanadianyouthoverall;9441%ofadmissionstodetentionwereIndigenousyouthandIndigenousgirlsrepresent53%ofyouthincorrections;95andincarcerationratesforallIndigenouspeoplesareincreasing96.

• Povertycrisis:60%ofIndigenouschildrenlivingonreserveliveinpoverty(76%inManitobaFirstNations)comparedto13%fornon-Indigenousandnon-racializedCanadians;povertyrateshaveworsenedinthelastfiveyears;97IndigenouswomenaremorelikelytobesinglemothersanddisproportionatelyliveinpovertycomparedtoIndigenousmenandnon-Indigenouswomen.98

• Crisisofviolence:Thereareover1,181knowncasesofmurderedanddisappearedIndigenouswomenandgirls;99researchindicatesthenumberislikelymorethan4,000;100Indigenouswomenrepresent16%ofhomicidevictimsbutonly4%ofthefemaleCanadianpopulation;101whilehomicideratesaredecreasingforCanadianwomen,theyareincreasingforIndigenouswomenandgirls.102

92MandyWesley,“Marginalized:TheAboriginalWomen'sExperienceinFederalCorrections”,PublicSafetyCanada(2012)at33-34,online:<https://www.publicsafety.gc.ca/cnt/rsrcs/pblctns/mrgnlzd/index-en.aspx>.93Ibid.94JusticeCanada,AOne-DaySnapshotofAboriginalYouthinCustodyAcrossCanada:PhaseII,(Ottawa:DepartmentofJusticeCanada,2004)atiii,online:<http://www.justice.gc.ca/eng/rp-pr/cj-jp/yj-jj/yj2-jj2/yj2.pdf>.95StatisticsCanada,YouthcorrectionalstatisticsinCanada,2013/14,byCorrectionalServicesProgramCatalogueNo85-002-X(Ottawa:StatisticsCanada,2015),online:<http://www.statcan.gc.ca/pub/85-002-x/2015001/article/14164-eng.htm>.96OfficeoftheCorrectionalInvestigator,Backgrounder:AboriginalOffenders–ACriticalSituation(Ottawa:OfficeoftheCorrectionalInvestigator,2012),online:<http://www.oci-bec.gc.ca/cnt/rpt/oth-aut/oth-aut20121022info-eng.aspx>.97DavidMacdonald&DanielWilson,“ShamefulNeglect:IndigenousChildPovertyinCanada”(2016)5CanadianCentreforPolicyAlternativesat5-6,online:<https://www.policyalternatives.ca/sites/default/files/uploads/publications/NationalOffice/2016/05/Indigenous_Child_Poverty.pdf>.98AboriginalAffairsandNorthernDevelopmentCanada,AboriginalWomeninCanada:AStatisticalProfilefromthe2006Census,(Ottawa:MinisterofAboriginalAffairsandNorthernDevelopment,2012)atii-iv,online:<https://www.aadnc-aandc.gc.ca/DAM/DAM-INTER-HQ/STAGING/texte-text/ai_rs_pubs_ex_abwch_pdf_1333374752380_eng.pdf>.99RoyalCanadianMountedPolice,MissingandMurderedAboriginalWomen:ANationalOperationalOverview,(Ottawa:RCMP,2014)at3,online:<http://www.rcmp-grc.gc.ca/wam/media/460/original/0cbd8968a049aa0b44d343e76b4a9478.pdf>[RCMPReport].100JohnTasker,“ConfusionReignsOverNumberofMissing,MurderedIndigenousWomen”,CBCNews(16February2016),online:<http://www.cbc.ca/news/politics/mmiw-4000-hajdu-1.3450237>.101RoyalCanadianMountedPolice,MissingandMurderedAboriginalWomen:ANationalOperationalOverview,(Ottawa:RCMP,2014)at7,9,online:<http://www.rcmp-grc.gc.ca/wam/media/460/original/0cbd8968a049aa0b44d343e76b4a9478.pdf>.102Ibidat9.

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• Culturalcrisis:96%ofIndigenouslanguagesareathighriskofextinction(60/63);103Indigenouspeopleslackaccessto99%oftheirtraditionallandsandresources;104extractiveindustriescauseenvironmentaldestructiondisproportionatelyonornearIndigenouslandsimpactingsocio-economicconditions;105thereisanincreasingriskofviolencetoIndigenouswomen106andcriminalizationoflandandwaterdefenders,manyofwhomarewomen.107

Therehasbeennoimprovementinsocio-economicconditionsinmanyFirstNations.108Canada’sAuditorGeneralhasnotedthefollowingreasonsforthis:

• Canadadoesnotprovideadequate,equitableorsufficientfundingforcriticalsocialprogramsandemergencymanagement;109

• Decision-makingforprogramfundingforFirstNationslackstransparency,doesnotadheretorelevantpolicies,andappears“arbitrary”;110

• Canada’sattemptstoimplementrecommendationsthatwouldhavethegreatestimpactonthehealthandwell-beingofFirstNationshaverepeatedlyfailed;111and

103SiteforLanguageManagementinCanada,“NativePeoplesandLanguages”UniversityofOttawa,(2016),online:<https://slmc.uottawa.ca/?q=native_peoples_languages>.104ArthurManuel,UnsettlingCanada:ANationalWake-upCall(Toronto:BetweentheLines,2015)at8.105AlexanderMiller,FromtheIndianActtotheFarNorthAct:EnvironmentalRacisminFirstNationsCommunitiesinOntario(Kingston:Queen’sUniversityDepartmentofEnviornmentalStudies,2016),online:<http://www.queensu.ca/ensc/sites/webpublish.queensu.ca.enscwww/files/files/501/Miller_ENSC501.pdf>;BeverlyJacobs,“EnvironmentalRacismonIndigenousLandsandTerritories”(PaperdeliveredattheCanadianPoliticalScienceAssociation’sAnnualConference,20May2010),online:<https://www.cpsa-acsp.ca/papers-2010/Jacobs.pdf>.106PamelaPalmater,“CorporateConquistadorsRapeIndigenousLandsandBodies”,Venezuela:TelesurEnglish,(16August2016),online:<http://www.telesurtv.net/english/opinion/Corporate-Conquistadors-Rape-Indigenous-Lands-and-Bodies--20160816-0011.html>;AndreaWoo,“StudyShowsLinkBetweenBCExtractionIndustries,DomesticAbuse”,TheGlobeandMail(24July2014),online:<http://www.theglobeandmail.com/news/british-columbia/mining-forestry-tied-to-domestic-violence/article19735561/>.107JamesAnaya,ReportoftheSpecialRapporteurontheRightsofIndigenousPeoples,JamesAnaya:ExtractiveIndustriesandIndigenousPeoples,UNOHCHR,24thSess,UNDocA/HRC/24/41(2013)atparas20-23,online:<http://unsr.jamesanaya.org/docs/annual/2013-hrc-annual-report-en.pdf>;MiningWatchCanada,IntheNationalInterest?CriminalizationofLandandEnvironmentDefendersintheAmericas(Ottawa:MiningWatchCanada,2015),online:<http://miningwatch.ca/sites/default/files/inthenationalinterest_fullpaper_eng_1.pdf>.108StatisticsCanada,TheCommunityWell-BeingIndex:ReportonTrendsinFirstNationsCommunities,1981-2011,(Ottawa:StatisticsCanada,2015),online:<https://www.aadnc-aandc.gc.ca/eng/1345816651029/1345816742083>.109AuditorGeneralofCanada,ReportoftheAuditorGeneralofCanadatotheHouseofCommons-:Chapter4:FirstNationsChildandFamilyServicesProgram–IndianandNorthernAffairsCanada(Ottawa:OfficeoftheAuditorGeneral,2008)at2,online:<http://www.oag-bvg.gc.ca/internet/docs/aud_ch_oag_200805_04_e.pdf>;AuditorGeneralofCanada,ReportoftheAuditorGeneralforCanada:Chapter6:EmergencyManagementonReserves(Ottawa:OfficeoftheAuditorGeneral,2013)at2,online:<http://www.oag-bvg.gc.ca/internet/docs/parl_oag_201311_06_e.pdf>.110AuditorGeneralofCanada,ReportoftheAuditorGeneralofCanadatotheHouseofCommons:Chapter5:FirstNationsPolicingProgram–PublicSafetyCanada,(Otttawa:OfficeoftheAuditorGeneral,2014)at12,online:<http://www.oag-bvg.gc.ca/internet/English/parl_oag_201405_05_e_39336.html>.

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• InformationthatwouldgiveaclearpictureofcrisisinFirstNationsisnottracked,adequatelyrecorded,maintained,orreportedtoParliament.112

TheAuditorGeneralofCanadaconcludedthattheselong-standingproblemsinFirstNationsareexpectedtocontinueunlessCanadaactsontherecommendationsandmakessignificantfinancialinvestmentsinitsIndigenouspeoples.113TheTruthandReconciliationReportmade94CallstoAction,whichincludedincreasingfundingforeducation,health,andchildwelfare.114Anayamadesimilarcallsformorefundingforhousing,health,childwelfare,andeducation.115Despitepromisestothecontrary,Canadahasnotaddressedthechronicunderfundingintheseareas.116The2%caponeducationfundingputinplacein1996isstillinplaceandnoextramoneywasgivenforpost-secondaryeducationdespitefederalpromises.117TheCEDAWCommitteerecognizedinitsInquiryReportonmissingandmurderedIndigenouswomenandgirls,118thatthepovertyandsocialdisadvantageofIndigenouswomenexacerbates

111AuditorGeneralofCanada,ReportoftheAuditorGeneralofCanadatotheHouseofCommons:Chapter5:FirstNationsPolicingProgram–PublicSafetyCanada,(Ottawa:OfficeoftheAuditorGeneral,2014)at12,online:<http://www.oag-bvg.gc.ca/internet/English/parl_oag_201405_05_e_39336.html>.AuditorGeneralofCanada,2011JuneStatusReportoftheAuditorGeneralofCanadatotheHouseofCommons–Chapter4:ProgramsforFirstNationsonReserves,(Ottawa:OfficeoftheAuditorGeneral,2011)at1-2,online:<http://www.oag-bvg.gc.ca/internet/docs/parl_oag_201106_04_e.pdf>.112AuditorGeneralofCanada,ReportoftheAuditorGeneralofCanada:Chapter5:IndianandNorthernAffairsCanada–EducationProgramandPost-SecondaryStudentSupport,(Ottawa:OfficeoftheAuditorGeneral,2004)at1,online:<http://www.oag-bvg.gc.ca/internet/docs/20041105ce.pdf>;AuditorGeneralofCanada,ReportoftheAuditorGeneralofCanadatotheHouseofCommons:Chapter6:FederalGovernmentSupporttoFirstNations–HousingonReserves,(Ottawa:OfficeoftheAuditorGeneral,2003)at2,18,21-2,online:<http://www.oag-bvg.gc.ca/internet/docs/20030406ce.pdf>.113Ibidat2.114TruthandReconciliationCommissionofCanada,CallstoAction(Winnipeg:TruthandReconciliationCommissionofCanada,2015),online:<http://www.trc.ca/websites/trcinstitution/File/2015/Findings/Calls_to_Action_English2.pdf>.115JamesAnaya,ReportoftheSpecialRapporteurontheRightsofIndigenousPeoples,JamesAnaya:ExtractiveIndustriesandIndigenousPeoples,UNOHCHR,24thSess,UNDocA/HRC/24/41(2013)atparas20-23,online:<http://unsr.jamesanaya.org/docs/annual/2013-hrc-annual-report-en.pdf>.116RightHonourablePrimeMinisterJustinTrudeau,“RemarksbyJustinTrudeauattheAssemblyofFirstNations36th(deliveredattheAnnualGeneralAssemblyofFirstNations,10December2015),online:<https://www.liberal.ca/realchange/justin-trudeau-at-the-assembly-of-first-nations-36th-annual-general-assembly/>.117JoannaSmith,“FirstNationsFundingCapisStillThere,DespiteTrudeau’sPromise”,CanadianPress(16June2016),online:<http://www.huffingtonpost.ca/2016/06/16/political-will-to-lift-first-nations-funding-cap-is-there-needs-time-chief_n_10515960.html>.118CommitteeontheEliminationofDiscriminationagainstWomen,ReportoftheinquiryconcerningCanadaoftheCommitteeontheEliminationofDiscriminationagainstWomen,underarticle8oftheOptionalProtocoltotheConventionontheEliminationofDiscriminationagainstWomen,UNCEDAW,2015,UNDocCEDAW/C/OP.8/CAN/1

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everyformofsocial,sexualandracializedsubordinationthattheyexperience.Highratesofdomesticandsexualizedviolenceareoneofthemanifestationsofpoorsocio-economicconditionsandtheongoingdiscriminationagainstIndigenouswomenandgirls.119Profounddeprivationsofpersonalautonomy,liberty,andsafetyresult.

III. ConclusionIndigenouswomenandgirlscontinuetosufferfromdeterioratinghealthandlivingconditions.Theyaresubjecttounacceptablyhighlevelsofviolenceandmurder,theirchildrenaredisproportionatelytakenbytheState,andtheyareoneofthefastestgrowingprisonpopulationsinCanada.ThelivingsituationsofmanyIndigenouswomenandgirlscontinuetodeteriorate.

ManyrecommendationshavebeenmadetoCanadatoimprovethesocio-economiclivingconditionsofIndigenouswomenandgirls;littleconcreteactionhasbeentaken.

IV. Recommendations

TheGovernmentofCanadashould:• Immediatelyprovideadequateneeds-basedfundingforallsocialprogramson-reserve

atleastonparwithprovincialfundinglevels,takingintoaccountsignificantadditionalinvestmentswhichwillberequiredtoaddressthehousingandeducationbacklogs,long-standinginfrastructuredeficiencies,andcumulativesocialandhealthproblemsthatdevelopedfromlackoffunding,withspecialattentiontotheparticulardisadvantagesfacedbyIndigenouswomenandgirls.

• Createjointemergencytaskforce(s)inpartnershipwith,andwithadequatefundingtosupport,FirstNations,Indigenouswomen’sgroups,organizations,andexpertstocreateastrategicplantoaddresslong-standingurgentcrisessuchasemergencymanagement,childrenincare,over-imprisonmentofIndigenouswomen,andhighsuiciderates.

• WorkinpartnershipwithFirstNations,Indigenouswomen’sgroups,organizationsandexpertstodeveloplegislation,policyandfundingsupportmechanismstofullyimplementUNDRIPwithaspecialandurgentfocusonextractiveactivitiestakingplaceinCanadaandtheneedforfree,informedandpriorconsent,specialprotectionsforIndigenouswomenandgirls,andfundingforsuitableresearch,legalsupportandIndigenousinstitutionstofullyandproperlyengageinongoingconsultationsanddecision-making,beforeallowinganyfurtheractivityonornearIndigenouslands.

(2015)atparas111–117,218,online:<http://tbinternet.ohchr.org/Treaties/CEDAW/Shared%20Documents/CAN/CEDAW_C_OP-8_CAN_1_7643_E.pdf>.119Ibidatparas36-37.

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• ImplementtherecommendationsoftheAuditorGeneralofCanada,TruthandReconciliationCommission,UNSpecialRapporteuronrightsofIndigenouspeoples,theCEDAWCommitteeandotherUnitedNationstreatybodiestoaddressthesocio-economiccrisesfacedbyIndigenouswomenandgirls.

• InvestigateandaddressthevulnerabilitiesassociatedwithIndigenouschildrenincare,runaways,andhomelessIndigenouswomenandchildrentopoliceracismandsexualizedviolence.

MurdersandDisappearancesofIndigenousWomenandGirls(Article5)

I. CERDCommittee’sConcernsandPreviousRecommendationsInits2007ConcludingObservations,theCERDCommitteestated:

Inlightofitsgeneralrecommendationno.25(2000)ongender-relateddimensionsofracialdiscrimination,theCommitteerecommendsthattheStatepartystrengthenandexpandexistingservices,includingsheltersandcounselling,forvictimsofgender-basedviolence,soastoensuretheiraccessibility.Furthermore,itrecommendsthattheStatepartytakeeffectivemeasurestoprovideculturally-sensitivetrainingforalllawenforcementofficers,takingintoconsiderationthespecificvulnerabilityofaboriginalwomenandwomenbelongingtoracial/ethnicminoritygroupstogender-basedviolence.120

In2012,theCERDCommitteeexpresseditsconcernaboutthehighlevelsofviolenceagainstIndigenouswomenandgirls,includingmurdersanddisappearances.TheCommitteeurgedCanadatotakeconcertedstepstoaddressthisviolence.121SincethelastCERDreview,otherUnitedNationsexpertbodies,andtheInter-AmericanCommissiononHumanRights,havemaderecommendationstoCanada,andundertakeninvestigations.FAFIAisdeeplyconcernedaboutCanada'sfailuretoacteffectivelytobringthecontinuingcrisisofmurdersanddisappearancestoanend.

120UNCERD,70thSess,ConcludingObservationsoftheCommitteeontheEliminationofRacialDiscrimination:Canada,UNDocCERD/C/CAN/CO/18(2007)atpara20.121CommitteeontheEliminationofRacialDiscrimiaton,ConcludingObservationsoftheCommitteeontheEliminationofRacialDiscrimination:Canada,UNCERD,80thSess,UNDocCERD/C/CAN/19-20(2012)atpara.17,online:<http://www2.ohchr.org/english/bodies/cerd/docs/CERD.C.CAN.CO.19-20.pdf>.

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II. CEDAWandInter-AmericanCommissiononHumanRights(IACHR)ReportsIn2011,FAFIAandtheNativeWomen'sAssociationofCanada(NWAC)askedtheConventionontheEliminationofDiscriminationagainstWomen(CEDAW)Committeetoinitiateaninquiry122underArticle8oftheOptionalProtocol123totheConventionontheEliminationofDiscriminationagainstWomen,intothecrisisofmurdersanddisappearancesofIndigenouswomenandgirls.FAFIAandNWACalsorequestedtheInter-AmericanCommissiontoinvestigatemurdersanddisappearancesofIndigenouswomeninBritishColumbia,Canada.In2015,theUnitedNationsCommitteeontheEliminationofDiscriminationagainstWomen(CEDAWCommittee)issuedthereportofitsinvestigationunderArticle8oftheOptionalProtocoltotheConventionontheEliminationofDiscriminationagainstWomenonmissingandmurderedIndigenouswomenandgirlsinCanada.124TheCEDAWCommitteefoundCanadainviolationoftheConventionandmade38recommendations.TheCEDAWReport’sfindingsandrecommendationsfollowedthereleaseofareportwithsimilarfindingsandrecommendationsfromtheInter-AmericanCommissiononHumanRightsonmissingandmurderedIndigenouswomenandgirlsinBritishColumbia,Canada.125FAFIAisconcernedthat37oftheCEDAWCommittee's38recommendationshavenotbeenimplemented,and9ofthe10IACHRrecommendationshavenotbeenimplemented.TheonerecommendationfrombothexpertbodiesthathasbeenimplementedistherecommendationthatCanadalaunchanindependentnationalinquiryintothemurdersanddisappearancesofIndigenouswomenandgirls.However,thereareseriousconcernsnowaboutCanada'sfailuretomoveforwardonimplementationoftheCEDAWandIACHRrecommendations,aswellasaboutthecapacityandcredibilityoftheNationalInquirytodischargeitscrucialwork.

122OptionalProtocoltotheConventionontheEliminationofAllFormsofDiscriminationagainstWomen,GARES54/4,UNGAOR,54thSess,UNDocA/RES/54/4(1999)online:<https://treaties.un.org/doc/source/docs/A_RES_54_4-Eng.pdf>(enteredintoforce22December2000,accessionbyCanada18October2002).123“CampaignofSolidaritywithAboriginalWomenArticle8Inquiry”,CanadianFeministAllianceforInternationalAction(Blog),(2015),online:<http://www.fafia-afai.org/en/solidarity-campaign/#the-cedaw-inquiry>.124CommitteeontheEliminationofDiscriminationagainstWomen,ReportoftheInquiryconcerningCanadaoftheCommitteeontheEliminationofDiscriminationagainstWomenunderarticle8oftheOptionalProtocoltotheConventionontheEliminationofAllFormsofDiscrimination,UNDocCEDAW/C/OP.8/CAN/1,6March2015,online:<http://tbinternet.ohchr.org/Treaties/CEDAW/Shared%20Documents/CAN/CEDAW_C_OP-8_CAN_1_7643_E.pdf>(seeparas13-20forbackgroundontheInquiryprocedure).125OAS,Inter-AmericanCommissiononHumanRights,MissingandMurderedIndigenousWomeninBritishColumbia,OEA/Ser.L/V/II(2014),online:<http://www.oas.org/en/iachr/reports/pdfs/indigenous-women-bc-canada-en.pdf>.

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WhileboththeCEDAWCommitteeandtheInter-AmericanCommissionrecommendedthatCanadalaunchaNationalInquirytofurtherpublicexaminationandincreasepublicunderstandingofthehumanrightscrisisofmurdersanddisappearances,anditscausesandconsequences,theestablishmentoftheNationalInquirydoesnotpermitgovernmentstodelaytakingstepsthathavebeenrecommendedbybothinternationalandregionalexpertbodies,andbyIndigenouswomen'sorganizationsandhumanrightsexpertsformanyyears.

III. TheNationalInquiry:ImplementationofoneCEDAWandIACHRrecommendation

Afterapre-consultationinquiryprocess,aNationalInquirywaslaunchedonSeptember1,2016.TheGovernmentofCanadahasallocated$53.86millionforthenationalinquiry,whichisrequiredtocompleteitsworkbytheendof2018.126LaunchingtheNationalInquirywasanimportantstepforwardinrecognizingthedeeplyrootedanddeadlydiscriminationthatIndigenouswomenandgirlsfaceinCanada.However,asoneoftheorganizationsthathasadvocatedformanyyearsfortheestablishmentofthisinquiry,FAFIAhasseriousconcernsabouttheInquiry’smandateandtermsofreference.127TheInquiryTermsofReference(ToR)128fallshortinthefollowingways:

a. NorequirementtouseahumanrightsframeworkTheCEDAWandIACHRreportsarelistedintheToRfortheCommissionerstoreviewandconsiderinmakingtheirfindings.However,theCommissionersarenotdirectedtoassesstheevidenceregardingsystemiccausesoftheviolenceorinstitutionalpracticesinlightofCanada’sinternationalhumanrightsobligations,ortomakerecommendationsthatwillensurefulfillmentoftherightsofIndigenouswomenandgirls.NordothetermsofreferencedirecttheCommissionerstodesignaplanfortheimplementationofCEDAWrecommendationsaspartofitswork.

126DepartmentofFinanceCanada,FederalBudget,2016,(Ottawa:DepartmentofFinance,2016),online:<http://www.budget.gc.ca/2016/docs/plan/toc-tdm-en.html>.127NativeWomen’sAssociationofCanada,PressRelease,“GovernmentofCanadaOfficiallyLaunchesNationalInquiryintoMissingandMurderedIndigenousWomenandGirls”(3August2016),online:<https://nwac.ca/2016/08/press-release-government-of-canada-officially-launches-national-inquiry-into-missing-and-murdered-indigenous-women-and-girls-mmiwg/>;FAFIA,AmnestyInternational,ChairinIndigenousGovernanceatRyersonUniversity,PressRelease,StatementonDraftTermsofReferencefortheNationalInquiry(20July2016),online:<http://fafia-afai.org/wp-content/uploads/2016/07/Statement-on-National-Inquiry-20-July-2016FINAL.pdf>.128IndigenousandNorthernAffairsCanada,TermsofReferenceforNationalInquiryintoMissingandMurderedIndigenousWomenandGirls(IndigenousandNorthernAffairsCanada,2016),online:<https://www.aadnc-aandc.gc.ca/eng/1470422455025/1470422554686>.

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FAFIA,NWAC,andtheCanadianJournalofWomenandtheLawheldaSymposiuminJanuary2016,whichincludedinternationalexpertsfromtheUN,CEDAWCommittee,andIACHR,andtheSymposiumrecommendedthattheInquirybegroundedinahumanrightsframework.129TheCanadianHumanRightsCommission(CHRC)madethesamerecommendation.130Butthetermsofreferencedonotmandatethis.

b. NoexplicitreferencetopoliceandthecriminaljusticesystemThereisnoexplicitmandatetoreviewpolicingpoliciesandpractices.SincethefailureofthepoliceandthejusticesystemtoadequatelyprotectIndigenouswomenandgirlsandtorespondquicklyanddiligentlytotheviolenceisacentralconcern,andsincethisfailurehasbeenidentifiedasaviolationofCanada’sobligationsunderinternationalhumanrightslaw,theabsenceofexplicitreferencetothiscriticalaspectofthediscriminationhascausedseriousconcern.TheGovernmentofCanadahasstatedthatthelanguageofthetermsofreferenceisbroadenoughtoincludepolicingandthejusticesystem,andexaminationofthemisintendedtobeincluded.TheNationalInquiryCommissionershaverepeatedtheassurancethatpolicingisagovernmentservicecoveredundertheirmandate.131FAFIAremainsconcernedthatinquiryintopolicingandprosecutionmattersisweakenedbecausetheToRarenotexplicit,132andtodateintheInquiry'swork,therearenosignsthatthisisamajorfocusofconcernorattention.

129FAFIA,NWAC,CanadianJournalofWomenandtheLaw,22RecommendationsforaNationalInquiryonMissingandMurderedIndigenousWomenandGirls(2016),online:<http://fafia-afai.org/wp-content/uploads/2016/02/MMIWinquiryrecommendationFINAL_English.pdf>;CanadianHumanRightsCommission,SubmissionbytheCanadianHumanRightsCommissiontotheGovernmentofCanadaPre-InquiryDesignProcess:AHumanRightsViolationRequiresAHumanRights-BasedInquiry,online:<http://www.chrc-ccdp.gc.ca/eng/content/submission-canadian-human-rights-commission-government-canada-pre-inquiry-design-process>.130CanadianHumanRightsCommission,SubmissionbytheCanadianHumanRightsCommissiontotheGovernmentofCanadaPre-InquiryDesignProcess:AHumanRightsViolationRequiresAHumanRights-BasedInquiry,online:<http://www.chrc-ccdp.gc.ca/eng/content/submission-canadian-human-rights-commission-government-canada-pre-inquiry-design-process>.131ConnieWalker,“MMIWNationalInquirytoFocusonViolencePreventionNotPoliceInvestigations”CBCNews(20July2016),online:<http://www.cbc.ca/news/canada/mmiw-inquiry-violence-prevention-1.3686671>.131AngelaSterritt,“TermsofReferenceofMMIWInquiry“LackTeeth”SaysBCFirstNationsChief”,CBCNews(21July2016),online:<http://www.cbc.ca/news/canada/british-columbia/terms-of-reference-mmiw-inquiry-lack-teeth-1.3689319>.132FAFIA,AmnestyInternational,ChairinIndigenousGovernanceatRyersonUniversity,PressRelease,StatementonDraftTermsofReferencefortheNationalInquiry(20July2016),online:<http://fafia-afai.org/wp-content/uploads/2016/07/Statement-on-National-Inquiry-20-July-2016FINAL.pdf>.

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c. Nomechanismforindependentreviewofcases

Thereisnomechanismforindependentreviewofindividualcaseswherethereareoutstandingconcernsovertheadequacyorimpartialityofpoliceinvestigations.TheInquiryCommissionersareauthorizedtoreferfamilieswithconcernsaboutongoingorpastinvestigationsto“theappropriateprovincialorterritorialauthorityresponsiblefortheprovisionofvictimservices”.Thisappearstobesendingfamiliesbackinacircle,tothesameauthoritieswithwhomtheywere/arehavingproblemstostartwith.Anindependentreviewofindividualcasesshouldbeavailablethroughanindependentprocesswhich,atleastinitially,theCommissionersdesignandoversee.133Alternatively,thefederal.provincialandterritorialgovernmentsshouldbecollaboratingonamechanismoutsidetheInquirythatwillprovideanindependentreview.

d. Currentstateofcollapse

Inadditiontoobviousweaknessesinitsmandate,theInquiryappearstobeinastateofcollapse.134TheInquiryhasbeenofficiallyatworksinceSeptember2016,anditisduetoprovideitsinterimreportinNovember2017.However,todate,theInquiryhasheldonlyonehearing.Variousstaffmembershaveresigned.135TheChiefCommissioner,MarionBuller,hasexplainedonnumerousoccasionsthattheyareworkingongettingtheirproceduresandsupportsinplaceforhearingthestoriesoffamilymembersofdisappearedandmurderedIndigenouswomenandgirls.136

133Ibid.134FredChartland,“InquiryintoMissing,MurderedIndigenousWomenin'SeriousTrouble':Advocates”,NationalPost(15May2017),online:<http://news.nationalpost.com/news/canada/inquiry-into-missing-murdered-indigenous-women-in-serious-trouble-advocates>;“InquiryintoMissingandMurderedIndigenousWomenPostponesEdmonton,ThunderBayMeetings”,CBCNews(14April2017),online:<http://www.cbc.ca/news/canada/edmonton/mmiwg-advisory-meetings-postponed-1.4071117>;GloriaGalloway,“Inquiryintomissingandmurderedwomenafailure:Indigenousgroup”,TheGlobeandMail(16May2017),online:<https://www.theglobeandmail.com/news/politics/inquiry-into-missing-and-murdered-women-a-failure-indigenous-group-says/article35003027/>;OpenLetterfromChristiBelcourttoChiefCommissionerMarionBullerNationalInquiryonMissingandMurderedIndigenousWomenandGirls(15May2017),online:<http://christibelcourt.com/open-letter-to-chief-commissioner-marion-buller-national-inquiry-on-missing-and-murdered-indigenous-women-and-girls/>;LetterfromMarionBuller,ChiefCommissionertoFamiliesofMissingandMurderedWomenandgirls,SurvivesofViolence,Ms.ChristiBelcourtandSignatoriesoftheOpenLetter(19May2017),online:<http://www.mmiwg-ffada.ca/files/ni-response-to-open-letter-en.pdf>.135“Missingandmurderedinquirycommissionertriestoquellconcernsoverstaffresignations”CBCNews(4July2017),online:<http://www.cbc.ca/news/canada/montreal/mmiwg-inquiry-resignation-1.4189791>;“MissingandMurderedInquiryCommissionerTriestoQuellConcernsOverStaffResignations”,CBCNews(4July2017),online:<http://www.cbc.ca/news/indigenous/mmiwg-resignation-michele-moreau-1.4187118>.136LetterfromMarionBuller,ChiefCommissionertoFamiliesofMissingandMurderedWomenandgirls,SurvivesofViolence,Ms.ChristiBelcourtandSignatoriesoftheOpenLetter(19May2017),online:<http://www.mmiwg-ffada.ca/files/ni-response-to-open-letter-en.pdf>;PhilippeMorin,“’We’regoingtoneedmoretime’MMIWGpromisesmoreYukonhearings”CBCNews(31May2017),online:<http://www.cbc.ca/news/canada/north/national-mmiwg-inquiry-whitehorse-hearings-time-1.4139647>.

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However,withtheexceptionofonehearinginWhitehorse,thishasnothappenedyet.Further,thereisnosignofthecommencementofapolicyinquiryintothesystemiccausesoftheviolenceandthesystemicfailuresinpolicing,thejusticesystem,andsocialprogrammingthatperpetuateandsustainit.FAFIAwelcomedthelaunchoftheNationalInquiryandiscommittedtoassistingtheCommissionerstodotheirwork.However,atthispoint,therearegraveconcernsaboutwhethertheNationalInquiry,ascurrentlycomposed,iscapableofdischargingthetaskitwasassigned.137

IV. StatusUpdateonImplementationofCEDAWReportrecommendationsFAFIAhasassessedtheimplementationofthecentralCEDAWrecommendationsonmurdersanddisappearancesofIndigenouswomenandgirls.

a. CEDAWRecommendation:EnsurethatallcasesofmissingandmurderedIndigenouswomenaredulyinvestigatedandprosecuted

Thisrecommendationhasnotbeenimplemented.Necessarycomponentsforimplementation,includingreliabledatacollectionacrosspoliceagenciesinallCanadianjurisdictions,standardprotocolsformissingwomeninvestigations,effective,enforceablestandardsforpoliceengagementwithIndigenouswomenandgirlsandfamilymembers,andreliableprosecutionandinformedadjudicationofviolenceagainstIndigenouswomen,arenotinplace.

i. NoconsistentandreliabledatacollectionIthasbeennotedrepeatedly,byCanadianandinternationalhumanrightsexperts,thatCanadiandataonmissingandmurderedIndigenouswomenandgirlsisnotcompleteorreliable.AccordingtotheRCMP,thereiserrorandimprecisioninreportingthenumberofcasesduetotheextensiveperiodoftimeoverwhichdatahasbeencollected,differingdatainterpretation,inconsistencyofvariablesusedoverthereviewperiod,andmultipledatasources(withdifferentpurposes,collectionmethodologies,anddefinitions).138AlthoughtheRCMPissuedreportsin2014and2015,whichprovidedtotalnumbersexceedingprevious

137FredChartland,"InquiryintoMissingandMurderedIndigenousWomeninSeriousTrouble",TheNationalPost(17May2017),online:<http://nationalpost.com/news/canada/inquiry-into-missing-murdered-indigenous-women-in-serious-trouble-advocates/wcm/8c7de7fe-7c60-4ab3-a2ca-81347eab62bc>138RoyalCanadianMountedPolice,MissingandMurderedAboriginalWomen:2015UpdatetotheNationalOperationalOverview(Ottawa:RCMP,2015)at3,online:<http://www.rcmp-grc.gc.ca/en/missing-and-murdered-aboriginal-women-2015-update-national-operational-overview>.

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publicestimatesofmurdersanddisappearances,andexceedingtheRCMP’sownpreviousfigures,139therearesignificantproblemswiththisRCMPdata.140Sofar,thereisnoco-ordinatedplanforstandardizedandmandatorydatacollectiononmissingandmurderedIndigenouswomenandgirls.Untiltherearestandardizeddatacollectionmethodsacrosspolicejurisdictionsandrequiredreportingofavictim’sethnicity—Indigenousorotherwise—CanadacannotensurethatallcasesofmissingandmurderedIndigenouswomenandgirlsareidentified,ordulyinvestigatedandprosecuted.141

ii.Nostandardized,co-ordinatedprotocolsforallpoliceforcestofollowwhenIndigenouswomenandgirlsarereportedmissing

TheCEDAWCommitteecalleduponCanadatoensurethatallpoliceagenciesfollowstandardized,mandatoryprotocolswhenrespondingtocasesofmissingandmurderedIndigenouswomen.142However,asnotedbytheRoyalCanadianMountedPolice(RCMP)inits2015OperationalOverview,thedefinitionofa“missingperson”andreportingprotocolsvaryacrosspolicejurisdictions.143TheRCMP,whichisonepoliceforceamonghundredsinCanada,haspublishedaNationalMissingPersonsStrategy.144However,theActionPlanpromisedbythisStrategyhasnotbeendeveloped,ormadepublic.145

139RoyalCanadianMountedPolice,MissingandMurderedAboriginalWomen:AnOperationalOverview(Ottawa:RCMP,2014),online:<http://ywcacanada.ca/data/research_docs/00000310.pdf>;;RoyalCanadianMountedPolice,MissingandMurderedAboriginalWomen:2015UpdatetotheNationalOperationalOverview(Ottawa:RCMP,2015)at3,online:<http://www.rcmp-grc.gc.ca/en/missing-and-murdered-aboriginal-women-2015-update-national-operational-overview>;Ibid.140LegalStrategyCoalitiononViolenceAgainstIndigenousWomen,“Analyzingthe2014RoyalCanadianMountedPolice(RCMP)Report,MissingandMurderedAboriginalWomen:ANationalOperationalReview”(June2015),online:<http://www.leaf.ca/wp-content/uploads/2015/06/2015-06-16-MMIW-LSC-2014-Fact-Sheet-final-version.pdf>.141TheGovernmentofCanadarecentlyannouncedanewfederalstrategytoaddressgender-basedviolence,whichprovidessomefundingforaknowledgecentrewithinStatusofWomenCanadawhichwillundertake"datacollectionandresearchinpriorityareas."However,theGovernmentofCanadadoesnotholdoutthisknowledgecentreanditsfundingasasolutiontotheneedforstandardizedandmandatorydatacollectiononmurdersanddisappearancesofIndigenouswomenandgirls.See:Canada'sStrategytoPreventandAddressGender-BasedViolence,online:<http://www.swc-cfc.gc.ca/violence/strategy-strategie/GBV_Fact_sheets_5.pdf>142UNCEDAW,ReportoftheinquiryconcerningCanadaoftheCommitteeontheEliminationofDiscriminationagainstWomenunderarticle8oftheOptionalProtocoltotheConventionontheEliminationofAllFormsofDiscriminationagainstWomen,UNOHCHR,2015,UNDocCEDAW/C/OP.8/CAN/1at54,online:<http://undocs.org/CEDAW/C/OP.8/CAN/1>.143yalCanadianMountedPolice,MissingandMurderedAboriginalWomen:2015UpdatetotheNationalOperationalOverview(Ottawa:RCMP,2015)at17,online:<http://www.rcmp-grc.gc.ca/en/missing-and-murdered-aboriginal-women-2015-update-national-operational-overview>.144RCMP,“NationalMissingPersonsStrategy”(2016),online:<http://www.rcmp-grc.gc.ca/en/rcmp-national-missing-persons-strategy>.SuggestedURL:<http://www.rcmp-grc.gc.ca/en/missing-persons>.

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iii.NoconsistentstandardofconductthatistransparentandenforceableforpolicewhenengagedwithIndigenouswomenandgirls

Therearecurrentlyneitherstandardsnorprocedures,thatareconsistentandco-ordinatedacrossjurisdictions,andthatareeffectiveinensuringthatIndigenouswomenandgirls,andtheirfamilymembersandfriends,donotfacediscriminatory,racistandsexisttreatmentbypoliceandinthejusticesystem.Standardsofconductforpolicingareusuallyincorporatedintoprovincialandterritorialpoliceacts,butproceduresforenforcingthesestandardsareweak,notindependent,andinaccessible.

b. CEDAWRecommendation:TakecomprehensivemeasurestosignificantlyimprovethesocioeconomicconditionsoftheIndigenouscommunity,includingtheconditionsaffectingIndigenouswomenbothon-andoff-reserve

Thisrecommendationhasnotbeenimplemented.Dataonthesocio-economicconditionsofIndigenouswomenandgirlsareprovidedunderaseparateheadinginthisreport.

i. NocoherentplanorstrategyTodate,thereisnocoherentplanorstrategytoaddressthepovertyofIndigenouswomenandgirls,ortheirlackofaccesstodecenthousing,adequateandnon-discriminatorychildwelfareandchildprotectionservices,legalaid,shelters,andotherbasicneeds.TherehasbeennoprocessorengagementthatwouldsetinplaceadiscussionaroundacoherentplanorstrategyforIndigenouswomen,withIndigenouswomen'sparticipation.

ii. BudgetaryallocationsunclearInMarch2016,theGovernmentofCanadaannounceditwillinvest$8.4billiondollarsoverfiveyearsintheareasofeducation,infrastructure,trainingandotherprogramsforIndigenouspeoples.146Thisbudgetallocationdoesnotaddresspoverty,foodsecurity,housing,oreducationandemploymentstrategiesspecificallyfocusedonIndigenouswomen.

145AccesstoInformationrequestmadeinJuly2016,todetermineifIndigenouswomenaretakenintoconsiderationintheActionPlan;currentlywearenotinreceiptofagovernmentresponse.146KristyKirkup,“LiberalBudgetIncludesBillionsinNewSpendingforAboriginalPeople”CBCNews(22March2016),online:<http://www.cbc.ca/news/indigenous/liberal-budget-billions-new-spending-aboriginal-peoples-1.3502942>.

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InMarch2017,anadditional$3.4billiondollarsforareasof“criticalneed”wasaddedtotheoriginalfiveyearpledge.147Thisnewmoneyallocatedin2017includes$828.2millionforFirstNationsandInuithealth,including$118.2milliontosupportmentalhealthprogramsand$15milliontocombatdrugdependency.148Inaddition,$1.1billionhasbeenallocatedfor“improvingIndigenouscommunities”.149However,itisnotclearhowthefundswillbeallocatedandwhethertheywilldirectlyimproveIndigenouswomen’ssocioeconomicconditions.

c. CEDAWRecommendation:TakespecificmeasurestobreakthecircleofdistrustbetweentheauthoritiesandtheIndigenouscommunity,improveavenuesofcommunicationandengageinameaningfuldialoguewithrepresentativesoftheIndigenouscommunity

Thisrecommendationhasnotbeenimplemented.

i.PolicebrutalityagainstIndigenouswomenandgirlsCanadahasnotaddressedpolicepracticesinrelationtoracist,sexistandneglectfulpoliceinvestigationsintoviolenceagainstIndigenouswomenandgirls,norhasitaddressedpoliceconductintermsofracism,abuseandsexualizedviolencedemonstratedbymembersofvariouspoliceforcestowardsIndigenouswomenandgirls,i.e.asperpetratorsthemselves.150Intimidation,threats,physicalabuse,sexualassaultsandthesexualexploitationofIndigenouswomenandgirls(includingchildpornography)bypoliceforcesinCanadahavebeendocumentedbyHumanRightsWatch151andvariousmediaoutletsinCanada.In2013,HumanRightsWatchfoundthatwomeninnorthernBritishColumbiawereharassed,threatened,rapedandbeatenbypolice.152HumanRightsWatchreportedeightincidentsinwhichpolicephysicallyassaultedorusedquestionableforceagainstgirlsundertheageof18.153FouryearsaftertheHumanRightsWatchreport,theChairpersonoftheCivilianReviewand

147MargoMcDiarmid,“BudgetTargets$3.4Bfor‘Critical’NeedsofIndigenousCommunities”CBCNews(22March2017),online:<http://www.cbc.ca/news/politics/liberal-budget-indigenous-2017-1.4035409>.148Ibid.149Ibid.150PamelaPalmater,“ShiningLightontheDarkPlaces:AddressingPoliceRacismandSexualizedViolenceagainstIndigenousWomenandGirlsintheNationalInquiry”(2016)28:2CJWL253.151HumanRightsWatch,ThoseWhoTakeUsAway:AbusivePolicingandFailuresinProtectionofIndigenousWomenandGirlsinNorthernBritishColumbia,Canada(NewYork:HumanRightsWatch,2013)at32,online:<https://www.hrw.org/sites/default/files/reports/canada0213webwcover_0.pdf>.152HumanRightsWatch,“ThoseWhoTakeUsAway:AbusivePolicingandFailuresinProtectionofIndigenousWomenandGirlsinNorthernBritishColumbia,Canada”(13February2013),online:<https://www.hrw.org/report/2013/02/13/those-who-take-us-away/abusive-policing-and-failures-protection-indigenous-women>.153Ibid.

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ComplaintsCommissionfortheRCMPissuedareport,thatbroadlyconfirmsthefindingsofthe2013HumanRightsWatchReport.154InJune2017,HumanRightsWatchissuedanewreportonpolicerelationswithIndigenouswomeninSaskatchewan.155ThisreportdocumentsarelationshipfracturedbytheactiveinvolvementoftheRCMPintheenforcementofresidentialschoolsrulesandworsenedbycurrentviolentpolicingpracticesincluding,excessiveuseofforce,degradingandabusivebodyandstripsearchesbymaleofficersandfailuretoprotectIndigenouswomenfromviolence.ThesereportsrevealapatternofviolencewhereIndigenouswomenaretargetedspecificallybecausetheyareIndigenousandbecausethereisahistoryoftheviolenceperpetratedagainstthembeingneglectedanddisregardedbytheauthorities.156WomeninValD’OrQuebechavecomeforwardtopubliclycomplainaboutphysicalandsexualabusebypolice.157Recently,anumberofRCMPOfficershavebeenarrestedordisciplinedforsexualexploitationandsexualabuseofwomenandgirlswhowereintheircharge.158TheextentofpolicebrutalitytowardsIndigenouswomenandgirlsisshockinganditcontinuesunabated.159ThisconductiscurrentthesubjectofapublicinquiryinQuebec.160Highlevelsofsexism161,racism,162andpolicecorruption163generally,andtowardsIndigenouswomenandgirlsspecifically,furthercompoundtheproblem,asmostcomplaintprocessesarethroughthesameoffendingpoliceforces.

154CivilianReviewandComplaintsCommissionfortheRCMP,“Chairperson'sFinalReport...onPublicInterestInvestigationonPolicinginNorthernBritishColumbia”(16February2017),online:<https://www.crcc-ccetp.gc.ca/en/chairs-final-report-after-commissioners-chair-initiated-complaint-and-public-interest-investigation>155HumanRightsWatch,Canada:“PoliceFailIndigenousWomeninSaskatchewan”(19June2017),online:<https://www.hrw.org/news/2017/06/19/canada-police-fail-indigenous-women-saskatchewan>.156Ibid.157“Aboriginalwomen’sclaimsofpolicesexualabuseunderinvestigation”,CBCNews(22October2015),online:<http://www.cbc.ca/news/canada/montreal/aboriginal-women-s-claims-of-police-sex-abuse-under-investigation-1.3282845>.158HollyMoore,“Mountietakeswomanhometo‘pursueapersonalrelationship’”,CBCNews(8January2015),online:<http://www.cbc.ca/news/canada/manitoba/mountie-takes-woman-home-from-jail-to-pursue-a-personal-relationship-1.2893487>;“FormerManitobaMountiechargedwithsexualexploitation”,CBCNews(7September2016),online:<http://www.cbc.ca/news/canada/manitoba/former-rcmp-officer-charged-winnipeg-1.3751243>;MaryseZeidler,“SurreyRCMParrestMountieafterCreepCatcherssting”,CBCNews(9September2016),online:<http://www.cbc.ca/news/canada/british-columbia/surrey-rcmp-creep-catchers-1.3755848>.159PamelaPalmater,“ShiningLightontheDarkPlaces:AddressingPoliceRacismandSexualizedViolenceagainstIndigenousWomenandGirlsintheNationalInquiry”(2016),28:2CJWL253.160Commissiond’enquêtesurlesrelationsentrelesAutochtonesetcertainsservicespublics,‘‘ConveningtotheCommissiond’enquêtesurlesrelationsentrelesAutochtonesetcertainsservicespublicsduQuébec:écoute,réconciliationetprogrès’slaunchingpressconference’’(13March2017)online<https://www.cerp.gouv.qc.ca/fileadmin/Fichiers_clients/Press_release_CERP_2017-03-13.pdf>161NatalieClancy,“MoreWomenAllegingHarassmentWanttoJoinLawsuitAgainstRCMP”,CBCNews(4June2015),online:<http://www.cbc.ca/news/canada/british-columbia/more-women-alleging-harassment-want-to-join-lawsuit-against-rcmp-1.3089534>;JohnTasker,“RCMP’sRecentHistoryofHarassment,Abuseand

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ItisdifficulttorebuildtrustaslongaspoliceracismandsexualexploitationofIndigenouswomenandgirlscontinues.

ii.InadequatepolicecomplaintsprocessesCurrently,thereisnooversightbodyorcomplaintsprocedureforpolicinginanyjurisdictionthathastheconfidenceofIndigenouswomenandgirls,andthatisgenuinelyaccessibletothem.Forexample,althoughtheCivilianReviewandComplaintsCommissionfortheRCMPstatesthatitisanindependentagency,allcomplaintsagainstRCMPOfficersarefirstinvestigatedbytheRCMP;furtherstepsareonlytakeniftheCommissionisnotsatisfiedwiththeRCMPreport.164Complaintsagainstthepolicearenotoriouslyunsuccessful.165Highlevelsofsexism166,racism,167andpolicecorruption168generally,andtowardsIndigenouswomenand

Discrimination”,CBCNews(18February2016),online:<http://www.cbc.ca/news/politics/rcmp-sexual-harassment-history-1.3453413>.162NovaScotia,RoyalCommissionontheDonaldMarshall,Jr,Prosecution,DigestofFindingsandRecommendations(NovaScotia:December1989)at1,online:<https://www.novascotia.ca/just/marshall_inquiry/_docs/Royal%20Commission%20on%20the%20Donald%20Marshall%20Jr%20Prosecution_findings.pdf>;RoyalCommissiononAboriginalPeoples,RoyalCommissiononAboriginalPeoples,ReportoftheRoyalCommissiononAboriginalPeoples,Vol4(Ottawa:CanadaCommunicationGroup,1996)at434,online:<http://data2.archives.ca/e/e448/e011188230-04.pdf>;AboriginalJusticeImplementationCommission,ReportoftheAboriginalJusticeInquiryofManitoba(Manitoba:November1999)atChapter1,online:<http://www.ajic.mb.ca/volumell/chapter1.html>.163JimBronskill,“RCMPstudyfindshundredsofcasesofcorruptiononMounties”,TorontoStar(18May2014),online:<https://www.thestar.com/news/canada/2014/05/18/rcmp_study_finds_hundreds_of_cases_of_corruption_in_mounties.html>.164See:CivilianReviewofComplaintsCommissionfortheRCMP(15May2017),online:<https://www.crcc-ccetp.gc.ca>.165GiuseppeValiante,“RCMPRejects90%ofFormalComplaints”,IFPress(24October2014),online:<http://www.ifpress.com/2014/10/27/rcmp-rejcts-90-of-formal-complaints>.166NatalieClancy,“MoreWomenAllegingHarassmentWanttoJoinLawsuitAgainstRCMP”,CBCNews(4June2015),online:<http://www.cbc.ca/news/canada/british-columbia/more-women-alleging-harassment-want-to-join-lawsuit-against-rcmp-1.3089534>;JohnTasker,“RCMP’srecenthistoryofharassment,abuseanddiscrimination”,CBCNews(18February2016),online:<http://www.cbc.ca/news/politics/rcmp-sexual-harassment-history-1.3453413>.167NovaScotia,RoyalCommissionontheDonaldMarshall,Jr,Prosecution,DigestofFindingsandRecommendations(NovaScotia:December1989)at1,online:<https://www.novascotia.ca/just/marshall_inquiry/_docs/Royal%20Commission%20on%20the%20Donald%20Marshall%20Jr%20Prosecution_findings.pdf>;RoyalCommissiononAboriginalPeoples,ReportoftheRoyalCommissiononAboriginalPeoples,Vol4(Ottawa:CanadaCommunicationGroup,1996)at434,online:<http://data2.archives.ca/e/e448/e011188230-04.pdf>;AboriginalJusticeImplementationCommission,ReportoftheAboriginalJusticeInquiryofManitoba(Manitoba:November1999)atChapter1,online:<http://www.ajic.mb.ca/volumell/chapter1.html>.

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girlsspecifically,furthercompoundtheproblem,asmostcomplaintprocessesarethroughthesameoffendingpoliceforces.Further,thereisnonationallycoordinatedinformationmechanismtoensurethatIndigenouswomenhavetheknowledgeandsupportsnecessarytomakecomplaintsagainstpoliceofficersoragencies.TrustbetweenIndigenouswomenandpoliceauthoritiesrequirescrediblecomplaintproceduresandatransparentandsupportedprocessforlodgingcomplaints,particularlyforthoselivinginremoteareas.Thesedonotyetexist.

V. Recommendations

TheGovernmentofCanadashould:• AmendthetermsoftheNationalinquiryand/oraspecialinquirybeconductedto

investigatepoliceviolenceagainstIndigenouswomenandgirls,notingallfiledcomplaints,investigations,charges,andprosecutionsandaspecialinvestigationshouldbemadeofthevulnerabilitiesassociatedwithIndigenouschildrenincare,runaways,andhomelessIndigenouswomenandchildrentopoliceracismandsexualizedviolence.

• Togetherwithprovincesandterritoriesprovideunfetteredaccesstofederal,provincial,territorial,municipalrecords,statistics,andotherdatanecessarytotheextentofpoliceracism,abuse,andsexualizedviolenceagainstIndigenouswomenandgirlsanditsconnectiontotheirfailuretoinitiateandinvestigatecomplaintsrelatedtothemurderedandmissing.

• Makeacompletereviewofalloversightmechanismsandentities(police-basedorindependent)forsystemicproblemsrelatedtotheproperandcompleteinvestigationsofpoliceabuseofIndigenouswomenandgirls,includingfailurestoinitiateandinvestigatecomplaintsandwhysomecomplaintsneverbroughtforward.

• Implementaspecificreviewofassaults,sexualassaults,andothermisconductbypoliceagainstIndigenouswomenandgirlsateverystageofpolicecustody—initiallystopped/called,arrestsordetentions,insidepolicevehicles,andinjailcells—aswellasanycomplaintsnotacteduponorwhereevidencewasnotcollectedorcouldnotbecollectedduetodelay.

168JimBronskill,“RCMPStudyFindsHundredsofCasesofCorruptiononMounties”,TorontoStar(18May2014),online:<https://www.thestar.com/news/canada/2014/05/18/rcmp_study_finds_hundreds_of_cases_of_corruption_in_mounties.html>.

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• ReviewCanada’sdomesticandinternationalhumanrightsobligationsinregardtotheprotectionofIndigenouswomenandgirlsfromracismandviolencecommittedbystateactors,suchaslawenforcement,lawyers,andjudgesanddueconsiderationmustbegiventotheimpactthatpoliceracismandviolencehasonthevictims,theirfamilies,communities,andNationsandhowtoproperlycompensatethem.

VI. RecentUNTreatyBodyCommentsonMurdersandDisappearances

a. HumanRightsCommittee(2015)CanadawasreviewedbytheHumanRightsCommitteeinJuly2015,andbytheCommitteeonEconomic,SocialandCulturalRightsinFebruary2016.FAFIAandNWACmadeajointsubmissiontotheHumanRightsCommittee169andFAFIAaddressedtheissueofmurdersanddisappearancesofIndigenouswomenandgirlsinitsgeneralsubmissiontotheCommitteeonEconomic,SocialandCulturalRights.170FAFIAandNWACmadeajointsubmissiontotheCEDAWCommittee.171TheHumanRightsCommitteecalledonCanada:

asamatterofpriority,[to](a)addresstheissueofmurderedandmissing[Indigenous]womenandgirlsbyconductinganationalinquiry,ascalledforbytheCommitteeontheEliminationofDiscriminationAgainstWomen,inconsultationwith[Indigenous]women’sorganizationsandfamiliesofthevictims;(b)reviewitslegislationatthefederal,provincialandterritoriallevels,andcoordinatepoliceresponsesacrossthecountry,withaviewtopreventingtheoccurrenceofsuchmurdersanddisappearances;(c)investigate,prosecuteandpunishtheperpetratorsandprovidereparationtovictims;and(d)addresstherootcausesofviolenceagainst[Indigenous]womenandgirls.172

169CanadianFeministAllianceforInternationalActionandNativeWomen’sAssociationofCanada,“MurdersandDisappearancesofAboriginalWomenandGirls:ReporttotheHumanRightsCommitteeontheOccasionoftheCommittee’sconsiderationoftheSixthPeriodicReportofCanada”(June2015),online:<http://tbinternet.ohchr.org/Treaties/CCPR/Shared%20Documents/CAN/INT_CCPR_CSS_CAN_20769_E.pdf>.170CanadianFeministAllianceforInternationalAction,“Women’sEconomic,SocialandCulturalRightsinCanada:2015-2016”(February2016),online:<http://tbinternet.ohchr.org/Treaties/CESCR/Shared%20Documents/CAN/INT_CESCR_CSS_CAN_22935_E.pdf>.171CanadianFeministAllianceforInternationalAction&NativeWomen’sAssociationofCanada,"ReplytoIssue17:ImplementationofCEDAWRecommendationsfromArticle8InquiryonMissingandMurderedIndigenousWomenandGirls"October2016,online:<fafia-afai.org/wp-content/uploads/2016/10/Native-Womens-Association-of-Canada-and-FAFIA.pdf>172HumanRightsCommittee,ConcludingobservationsonthesixthperiodicreportofCanada,UNDocCCPR/C/CAN/CO/6(13August2015)atpara9,online:

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TheHumanRightsCommitteeaskedCanadatoprovideinformationontheimplementationoftheaboverecommendationwithinoneyear—byAugust2016.173

b. CommitteeonEconomic,SocialandCulturalRights(2016)Inits2016periodicreviewofCanada,theCommitteeonEconomic,SocialandCulturalRightsnoteditsconcern“aboutthepersistenceofviolenceagainstwomenintheStateparty,whichisparticularlyprevalentamong[Indigenous]womenandgirlsandfurtherexacerbatedbytheeconomicinsecurityofwomen”.174TheCommitteerecommendedthat:

theStatepartyaddressviolenceagainstwomenandgirlsinaholisticmanner.Interalia,theStatepartyisencouragedtostudythelinkbetweenpoverty,ethnicoriginandvulnerabilitytoviolenceandtakeeffectivemeasuresaimedatpreventinganderadicatingviolenceagainstwomenandgirls.TheCommitteealsorecommendsthattheStatepartystepupitseffortstoprotectvictimsofviolence,includingbyensuringtheavailabilityofasufficientnumberofadequatesheltersforvictimsofviolence,aswellaslong-termhousingsolutionsandadequatesocialassistance.175

c. CommitteeontheEliminationofDiscriminationagainstWomen(2016)InOctober2016,CanadawasreviewedbytheCEDAWCommittee,andtheCommitteemadethisrecommendationinitsConcludingObservations:

TheCommitteerecommendsthattheStatepartyfullyimplement,withoutdelay,allrecommendationsissuedbytheCommitteeinitsreportonitsinquiry(seeCEDAW/C/OP.8/CAN/1,paras216-220)and:(a)Developacoordinatedplanforoverseeingtheimplementationofthe37outstandingrecommendationsmadebytheCommitteeinitsreport,by

<http://tbinternet.ohchr.org/_layouts/treatybodyexternal/Download.aspx?symbolno=CCPR%2FC%2FCAN%2FCO%2F6>.173Ibidatpara21.174CommitteeonEconomic,SocialandCulturalRights,ConcludingobservationsonthesixthperiodicreportofCanada,UNDocE/C.12/CAN/CO/6(23March2016)atpara33,online:<https://documents-dds-ny.un.org/doc/UNDOC/GEN/G16/062/37/PDF/G1606237.pdf?OpenElement>.175Ibidatpara34.

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workingincooperation,asappropriate,withthecommissionconductingthenationalinquiry,aswellaswith[Indigenous]womenandtheirorganizations,women'shumanrightsorganizationsandtheprovincialandterritorialgovernments;(b)Ensurethatallcasesofmissingandmurdered[Indigenous]womenaredulyinvestigatedandprosecuted;(c)Complementthetermsofreferenceofthenationalinquirywithaviewto:

(i)Ensuringtheuseofahumanrights-basedapproach;(ii)EnsuringthatthemandateoftheinquiryclearlycoverstheinvestigationoftheroleoftheRoyalCanadianMountedPolice,provincialpolice,municipalpoliceandpubliccomplaintscommissionsacrossfederal,provincialandmunicipaljurisdictions;(iii)Establishingamechanismfortheindependentreviewofcasesinwhichthereareallegationsofinadequateorpartialpoliceinvestigations;

(d)Ensureadequatesupportandprotectiontowitnessesandstrengthentheinclusivepartnershipwith[Indigenous]women’sorganizationsandnationalandinternationalhumanrightsinstitutionsandbodiesduringtheconductoftheinquiryandinitsimplementationprocess.176

CanadahasnoplanforimplementingtheremainingCEDAWrecommendations,andnomechanismisinplaceformonitoringimplementationofthem.TheNationalInquiryhasnotacknowledgedtheCEDAWrecommendations,ortheCEDAWandIACHRreports,andtheirrelevancetoitswork.

VII. IACHRFollow-UpHearingsonMurdersandDisappearancesOn7Apriland9December2016,theIACHRheldfollow-uphearingsinWashingtonD.CtoevaluateCanada’sprogressonimplementingtherecommendationsintheIACHRreportonmissingandmurderedIndigenouswomenandgirlsinBritishColumbia.FAFIAandNWACrepresentativesparticipatedinthesehearingsalongwithGovernmentofCanadarepresentativesand,inApril2016,theUNSpecialRapporteuronviolenceagainstwomen.Atthesehearings,theGovernmentofCanadastatedthatactionsarebeingtakenthataregivingeffecttotherecommendationsoftheCEDAWCommitteeandtheIACHR.177FAFIA

176UNCEDAW,ConcludingObservationsontheCombinedEighthandNinthPeriodicReportsofCanada,UNDocCEDAW/C/CAN/CO/8-9(2016)atpara27(a)-(d).177Inter-AmericanCommissiononHumanRights,“Canadá:MujeresindígenasBritishColumbia”(7April2016),online:YouTube<https://www.youtube.com/watch?v=mOPyAG3kXd4>;Inter-AmericanCommissiononHuman

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andtheNativeWomen'sAssociationofCanadatestifiedthattherearenomechanismsinCanadaformonitoringandevaluatinggovernmentactionstoimplementtheserecommendations,andthereisnodiscernibleormeasurableprogress.178

VIII. Conclusion

ThelaunchoftheNationalInquiryintomissingandmurderedIndigenouswomenwasawelcomestep.Butalmostayearlater,theNationalInquirydoesnotappeartobecapableofdoingwhatIndigenouswomenandhumanrightsorganizationsinCanadaexpected.TheGovernmenthastakennostepstointervene,re-organize,orre-settheInquiry.Atthesametime,CanadahasnoplaninplaceforimplementingtheoutstandingCEDAWandIACHRrecommendations.Manyoftheserecommendationscanbeactedonimmediately,andthisworkshouldbeoccurringalongside,andperhaps,astheCEDAWCommitteehasrecommended,incollaborationwith,theInquiry.179Further,thereisnocoordinationmechanism,andnomechanismforcentralizinginformation,tooverseeanyinitiativesbeingimplementedbydifferentpublicagenciesacrosslevelsofgovernment.180Consequently,thereisnomechanismtoholdgovernmentstoaccountforimplementationoftheCEDAWandIACHRrecommendations.TheoutcomeoftheNationalInquiryshouldbeaNationalActionPlanthatreflectsandincorporatesalloftheCEDAWandIACHRrecommendations,andotherstepsthattheNationalInquiryidentifiesasneeded.However,thereisnosignthattheInquiryhassuchagoal,oranyprospectofachievingit.

Rights,“Canadá:Asesinatomujeresindígenas”(9December2016),online:YouTube<https://www.youtube.com/watch?v=TkjSa7JYA30>.178CanadianFeministAllianceforInternationalAction&NativeWomen’sAssociationofCanada,"ReplytoIssue17:ImplementationofCEDAWRecommendationsfromArticle8InquiryonMissingandMurderedIndigenousWomenandGirls"October2016,at13,online:<fafia-afai.org/wp-content/uploads/2016/10/Native-Womens-Association-of-Canada-and-FAFIA.pdf>.179OAS,Inter-AmericanCommissiononHumanRights,MissingandMurderedIndigenousWomeninBritishColumbia,OEA/Ser.L/V/II(2014).online:<http://www.oas.org/en/iachr/reports/pdfs/indigenous-women-bc-canada-en.pdf>180UNCEDAW,ReportoftheinquiryconcerningCanadaoftheCommitteeontheEliminationofDiscriminationagainstWomenunderarticle8oftheOptionalProtocoltotheConventionontheEliminationofAllFormsofDiscriminationagainstWomen,UNOHCHR,2015,UNDocCEDAW/C/OP.8/CAN/1atpara188,online:<http://undocs.org/CEDAW/C/OP.8/CAN/1>.

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IX. RecommendationsTheGovernmentofCanada,governmentsoftheprovincesandterritories,andtheNationalInquiryonMissingandMurderedIndigenousWomenandGirlsshould:

• ImplementtherecommendationsoftheTRC,IACHR,CEDAWandotherUNbodiesinrelationtomurderedanddisappearedIndigenouswomenandgirlsthatgobeyondtheinitiationofanationalinquiry,includingrecommendationsthatwouldmostimmediatelyaffectIndigenouswomenandgirls’dailylives,health,safetyandsecurity,addresstheirpoorsocio-economicconditions,andensurespecificsupportsforvictimsofdomesticviolence.

• Ensurethatthroughthenationalinquiry,orotherwise,specialscrutinyisgiventothevulnerabilityofIndigenouschildrenincare,runaways,andhomelessIndigenouswomenandchildrentoracismandsexualizedviolencebypoliceandotheractors.

• EnsurethatIndigenouswomenandtheirfamiliesareprovidedwithanindependentreviewofcaseswheretherearequestionsabouttheadequacyorimpartialityofpoliceinvestigations.

• Ensurethatthroughthenationalinquiry,orotherwise,anextensiveinvestigationintopoliceviolenceagainstIndigenouswomenandgirlsisundertaken,notingallfiledcomplaints,investigations,charges,andprosecutions.

• Undertake,throughthenationalinquiry,orotherwise,acompletereviewofallpoliceacts,laws,regulations,andpoliciesrelatedtoprevention,investigation,anddisciplineforactsofracismandviolenceagainstwomengenerally,andIndigenouswomenandgirlsspecifically,aswellasallpoliceoversightmechanismsandentities.

• UndertakeareviewofCanada’sdomesticandinternationalhumanrightsobligationsinregardtotheprotectionofIndigenouswomenandgirlsfromracistandsexualizedviolencecommittedbystateactors,suchaslawenforcement,lawyers,healthcareprofessionals,childwelfareworkers,andjudges.

• Designmethodsforcompensatingvictimsofpolicefailures,neglect,andviolence,andtheirfamiliesandcommunities.

• Designandestablishanaccessible,transparentmechanismforoverseeingtheimplementationoftheCEDAWandIACHRrecommendations,andotherrelatedrecommendationsonmissingandmurderedIndigenouswomenandgirls.

• Supportwomen’shumanrightsorganizationsthatcanassistandofferexpertisetotheNationalInquiry.

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ExclusionofIndigenousWomen'sOrganizationsfromNationtoNationTalks(Articles2and5ofCERD,Articles18,22and44ofUNDRIP)

I. NewFederalGovernment

InOctober2015,anewfederalgovernmentassumedpower–endinga10-yearperiodofConservativefederalgovernmentsledbyStephenHarper.TheLiberalPartyofCanadaisnowthegoverningfederalpartyundertheleadershipofPrimeMinisterJustinTrudeau.Thecurrentfederalgovernmenthasexpresseditscommitmenttoanewnation-to-nationrelationshipwithIndigenouspeoples.181

II. CanadaendorsestheUNDeclarationontheRightsofIndigenousPeoples

(UNDRIP)

On9May2016,theGovernmentofCanadaannouncedthatitfullysupportsUNDRIP,182andthePrimeMinisteraskedtheMinisterofIndigenousandNorthernAffairsandotherMinisterstofullyimplementitsprovisions.183Article18ofUNDRIPisparticularlyimportantforIndigenouswomenbecauseitstatesthat“Indigenouspeopleshavetherighttoparticipateindecision-makinginmatterswhichwouldaffecttheirrights,throughrepresentativeschosenbythemselves…”184Article44guaranteesthatallrightsinUNDRIPareguaranteedequallytomaleandfemaleIndigenouspersons.

III. IndigenousWomen'sOrganizationsExcludedfromNation-to-NationFramework

TheGovernmentofCanadahasdecidedthat,underitsnewnation-to-nationframework,itwillengagewiththethreegroupsrecognizedins.35ofCanada'sConstitution-FirstNations,InuitandMétis-andconsequentlyitwillconsultonaregularbasiswiththethreenationalorganizationsthatrepresentthesegroups,theAssemblyofFirstNations,theMétisNationalCouncil,andtheInuitTapirisat.TheGovernmentisalsomeetingwiththeCongressofAboriginal

181LiberalPartyofCanada,“ANewNation-to-NationProcess”(2015),online:<https://www.liberal.ca/realchange/a-new-nation-to-nation-process/>.182IndigenousandNorthernAffairsCanada,“StatementontheUnitedNationsDeclarationontheRightsofIndigenousPeoples”(23June2017)online:<https://www.aadnc-aandc.gc.ca/eng/1309374407406/1309374458958#a2>.183Ibid.184UnitedNationsDeclarationontheRightsofIndigenousPeoples,A/RES/61/295art18,(enteredintoforce:13September2007)online:<http://www.un.org/esa/socdev/unpfii/documents/DRIPS_en.pdf>.

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Peoples.185Theseareallmale-ledorganizations,andtheirrecordonwomen'srightsandwomen'sparticipationisweak.Untilthisnewnation-to-nationrelationshipwasdefined,theGovernmentofCanadahadapracticeofengagingwithfiveNationalAboriginalOrganizations,whichincludedtheNativeWomen'sAssociationofCanada(NWAC).Thechangetoanation-to-nationdialoguethatonlyincludedthreemale-ledNationalAboriginalOrganizationscameinMarch2016,whenNWACfounditself,forthefirsttimeinmanyyears,notincludedintalksbetweenfederal,provincial,territorialgovernmentsandIndigenousleadership.186Sincethattime,NWAChasbeendirectlyinformedbythePrimeMinisterthatitwillnotbeincludedintalksthatfallunderthenation-to-nationframework.OnJune12,2017,theAssemblyofFirstNationsandtheGovernmentofCanadasignedamemorandumofunderstandingsettingoutjointprioritiesforthenation-to-nationrelationship.ThismemoramdumignoreswomenissuessuchamissingandmurderedIndigenouswomenandgirls,genderdiscriminationintheIndianActandchildandfamilyservices.187Thisisastepbackwards.Anewnation-to-nationrelationshiprequiressupportingandfosteringtheequalityandparticipationofIndigenouswomen.Indigenouswomenneedtobefullpartnersintheircommunitiesandnationsandinengagementswithgovernments.

IV. Recommendations

• BasedonCanada’sdomesticandinternationalhumanrightsobligations,andspecificallyArticles18and44ofUNDRIP,theGovernmentofCanadashouldensurethattheNativeWomen'sAssociationofCanadaisafullpartnerinthenation-to-nationframework,andtakestepstoinvestinIndigenouswomen’sorganizationsatthenational,provincial,andterritoriallevelsothattheycanparticipateintheirowndecision-makingstructuresandprepareinformedpositionssothattheycanengageeffectivelyindialoguewithgovernmentsontheissuesthatdirectlyaffectthem.

• TheGovernmentofCanadashouldalsoprioritizeissuesimpactingIndigenouswomeninitsnation-to-nationrelationshipbuildingandincludeinthesediscussionstheNativeWomen’sAssociationofCanada,Nativewomen’sorganizations,andIndigenouswomenexpertsandadvocates.

185JohnTasker,“JustinTrudeauannounces3stepstohelpenactTruthandReconciliationcallstoaction”CBC(15December2016),online:<http://www.cbc.ca/news/politics/trudeau-indigenous-leaders-trc-1.3897902>;CanadianPress,“JustinTrudeaumeetsCongressofAboriginalPeoplestodiscussconcerns”(10January2017),online:<http://www.cbc.ca/news/politics/trudeau-congress-aboriginal-peoples-1.3929297>.186ElizabethMcSheffrey,“IndigenousLeadersShockedbyExclusionfromClimateChangeMeeting”NationalObserver(7March2016),online:<http://www.nationalobserver.com/2016/03/07/news/indigenous-leaders-shocked-exclusion-climate-change-meeting>.187MemorandumofUnderstandingonJointPrioritiesbetweentheAssemblyofFirstNationsandtheHerMahestytheQueeninRightofCanada,datedJune12,2017,online<http://www.afn.ca/uploads/files/canada-afn-mou-final-eng.pdf>.

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RacializedWomenandEmployment(Article5)

I. CERDCommittee’sConcernsandPreviousRecommendationsInits2012ConcludingObservations,theCERDCommitteerecommended:

(b)Intensifyingeffortstoremoveemployment-relateddiscriminatorybarriersanddiscrepanciesinsalariesbetweenAboriginalandnon-Aboriginalpeople,inparticularinSaskatchewanandManitoba.188

II. WageInequalityAccordingtoa2014,study189thestatusofracializedimmigrantwomenintheCanadianLabourMarketisasfollows:

• Thereare3.2millionimmigrantwomeninCanada,55%ofthemarefromracializedbackgrounds

• RacializedwomeninCanadaareover-representedinlow-skill,lowpaidlabour,evenwithaneducation

• ThesewomenfacetheworselabourmarketconditionsandoutcomesinCanada• Theyareover-representedinlow-paid,low-skilljobscharacterizedbyhighriskand

precarity• Thesewomenalsoexperienceelevatedratesofunder/unemployment• Thesegapsoccurdespitethefactthatimmigrantwomen,andmenaremorelikelytobe

university-educatedthantheirCanadian-borncounterparts

Indigenouspeoplefacea28yeargapineducation190whichleadstoa63yeargapinincomelevels191forIndigenouspeoplesgenerally.ThisgaphasaprouncedimpactonIndigenouswomen,particularlyconsideringthatIndigenouswomenareover-representedinsingleparenthouseholds.192

188UNCERD,80thSess,ConcludingObservationsoftheCommitteeontheEliminationofRacialDiscrimination:Canada,UNDocCERD/C/CAN/CO/19-20(2012)atpara19(b).189Premjietal,“PrecariousWorkExperiencesofRacializedImmigrantWomeninToronto:ACommunity-BasedStudy”(2014)22JustLabour:ACanadianJournalofWorkandSociety122at123.190OfficeoftheAuditorGeneralofCanada,2011JuneStatusReportoftheAuditorGeneralofCanada,OfficeoftheAuditorGeneralofCanada,online:<4http://www.oag-bvg.gc.ca/internet/english/parl_oag_201106_04_e_35372.html#hd5c>.191Wilson&DavidMacdonald,"TheincomegapbetweenAboriginalpeoplesandtherestofCanada"TheCanadianCentreorPolicyAlternatives(April2010).192VivianO’Donnell&SusanWallace,“FirstNations,MétisandInuitWomen”StatisticsCanada,online:<http://www.statcan.gc.ca/pub/89-503-x/2010001/article/11442-eng.htm>.

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III. PayEquityTheUNCEDAWCommitteeRecommendedthefollowinginitsconcludingobservationsforCanada:

Takeallmeasuresnecessarytonarrowthewagegap,includingbyrepealingthePublicSectorEquitableCompensationAct,adoptinglegislationinthefederaljurisdictionandinallprovincialandterritorialjurisdictionsontheprincipleofequalpayforworkofequalvalueandincreasingtheminimumwage,whichmanywomendisproportionatelyreceive…193

Lawsrequiringemployerstopayequalpayforworkofequalvalue(payequity)areakeyworkforceprotectionforwomen.Payequitylawsrequirenotsolelythatemployerspaythesamepayformenandwomenperformingthesamework,butthattheypayequalpayforworkofequalvalue.Thisisessentialbecausewomenwhoworkinfemaledominatedindustriesareoftenundervaluedandunder-compensated.Workthatrequirescomparableskills,responsibilityandworkingconditionsshouldbecompensatedequallyregardlessofthegenderoftheworker.194Atthefederallevel,womenhavebeenseekingimprovedpayequityprotectionformanyyears.MakingcomplaintsunderthepayequityprovisionsoftheCanadianHumanRightsActhasproventobeslowandcumbersome.A2004PayEquityTaskForce195recommendedaproactivepayequitysystemthatcouldalsoaddresspayinequitiesthatarewidenedbyraceanddisability.Ratherthanenactingproactivepayequitylegislationforthefederalsectorasawhole,in2009thefederalgovernmentpassedregressivelegislationforitsownemployees,thePublicServiceEquitableCompensationAct(PSECA).196UnderthePSECApayequityistobe

193CommitteeontheEliminationofDiscriminationAgainstWomen,ConcludingObservationsoftheCommitteeontheElminationofDiscriminationAgainstWomen,UNDocCEDAW/C/CAN/CO/8-9(25November2016)atpara39,online:<https://documents-dds-ny.un.org/doc/UNDOC/GEN/N16/402/03/PDF/N1640203.pdf?OpenElement>.194HouseofCommons,StandingCommitteeontheStatusofWomen,AnAnalysisoftheEffectsofthePublicSectorEquitableCompensationAct(June2009)at2(Chair:HedyFry),online:<http://www.parl.gc.ca/content/hoc/Committee/402/FEWO/Reports/RP4007440/402_FEWO_Rpt07/402_FEWO_Rpt07-e.pdf>.195PayEquityTaskForce,PayEquity:ANewApproachtoaFundamentalRight(Ottawa:PayEquityTaskForce,MinisterofJusticeandAttorneyGeneralofCanada,2004)at503,online:<http://www.collectionscanada.gc.ca/webarchives/20071121055449/http://www.justice.gc.ca/en/payeqsal/docs/petf_final_report.pdf>(alsoseethearchivedPayEquityTaskForcereviewwebsite,online:<http://www.collectionscanada.gc.ca/webarchives/20071115062515/http://www.justice.gc.ca/en/payeqsal/index.html>;andagovernmentsummaryoftheTaskForce'shistory,TreasuryBoardofCanadaSecretariat,“ThePublicSectorEquitableCompensationActandtheReformofPayEquity”(5February2013),online:<http://www.tbs-sct.gc.ca/lrco-rtor/relations/consult/psecarpe-lerspres04-eng.asp>.196PSECA,PublicServiceEquitableCompensationAct,SC2009,c2.

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dealtwiththroughcollectivebargaining,197makingpayequityforwomenabargainingchip–placingwomenunionmembersinacontestwithmalemembersoverbenefitsthatwillformpartofabargainingpackage–ratherthanahumanright.

TheSpecialCommitteeonPayEquityrecommendedinJune2016thatthePScCAberepealedandbereplacedwithaproactivefederalpayequitylaw.198Womennowhopethatthenewfederalgovernmentwilltakestepsforward,repealthePSECA,andenactproactivepayequitylegislationforthewholefederalsector.TheFederalGovernmenthaspromisedtotablelegislationin2018,torequirefederally-regulatedemployerstopaymenandwomenequally.199TheGovernmentwillbeconsultingwithvariousstakeholdersandreviewingtherecommendationsandsubsequentlyoverhaulingthehighly-criticizedPublicServiceEquitableCompensationAct.AccordingtotheMinisterofEmployment,WorkforceDevelopmentandLabour,theHonourableMaryAnnMihychuk,thislegislationwillbeanoverhaulofthecurrentsystemandwillmoveawayfromacomplaint-basedmodeltoonethatforcesemployerstocomplybyreviewingtheirwagesandensuringtheyareequal.200

IV. Part-time,Casual,PrecariousWork

Womenarelesslikelytoholdwellpaid,fulltimejobscomparedtomen201andarealsomorelikelytoholdmultiplejobs.202Workingpart-timeisnotnecessarilywomen’schoice,butratherisduetochildcareresponsibilitiesoraninabilitytofindfull-timework.Thegrowthofprecarious,unstableworkinCanadaaffectsthoseworkerswhoarealreadyvulnerable–women,andparticularlyimmigrant,racialized,Indigenouswomen,andwomenwith

197HouseofCommons,StandingCommitteeontheStatusofWomen,AnAnalysisoftheEffectsofthePublicSectorEquitableCompensationAct(June2009)at2(Chair:HedyFry),online:<http://www.parl.gc.ca/content/hoc/Committee/402/FEWO/Reports/RP4007440/402_FEWO_Rpt07/402_FEWO_Rpt07-e.pdf>.198SpecialCommitteeonPayEquity,“It’sTimetoAct”ReportoftheSpecialCommitteeonPayEquity(Ju8ne2016)42ndParliament,1stsession,online<http://ywcacanada.ca/data/research_docs/00000393.pdf>199KathrynMay,“Liberalspromise‘proactive’payequitylegislationtoclosewagegaps”OttawaCitizen(5October,2016)online:<http://ottawacitizen.com/news/national/liberals-promise-proactive-pay-equity-legislation-to-close-wage-gaps>.200Ibid.201DianeGalarneauandEricFecteau,“TheUpsandDownsofMinimumWage”(2006)StatisticsCanada,online:<http://www.statcan.gc.ca/pub/75-006-x/2014001/article/14035-eng.htm#a6>.202Ibid.

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disabilities.203Therearefeweffectiveprotectionsforwomenworkers,inprecarious,part-time,temporaryandlow-payingjobs.204

V. CareGiversTheUNCEDAWCommitteerecommendedthefollowinginitsconcludingobservationsforCanada:

DiscontinuetheuseofclosedworkpermitsintheTemporaryForeignWorkersProgram,therebyenablingwomenmigrantdomesticworkerstofreelychangeemployersandthusimprovingtheirworkingandlivingconditionsandreducingtheriskofabuse,ensurethatwomenmigrantdomesticworkerswhoarevictimsofrightsviolationshaveeffectiveaccesstojustice,includinglegalaid,andtakestepstofacilitateaccesstopermanentresidencypermitsforwomenmigrantdomesticworkers…205

In2014,thefederalLive-inCaregiverProgramwaseliminatedandreplacedwiththeCaregiverProgram,206anewbranchofthefederalTemporaryForeignWorkerProgram.207Ninety-fivepercentofcaregiversarewomenwhoarelargelyfromthePhilippines.208TheycontinuetobevulnerabletoexploitationandtheirprecariousstatushasincreasedwiththechangestotheProgram.The“live-in”requirementforcaregivershasbeenremoved,buttheycontinuetoexperienceexploitation,209andfacenewvulnerabilities:

• Caregiversarestilltiedtotheiremployers,andrequirementsoftheprogrammakeitdifficult—ifnotimpossible—toswitchemployers.

• Caregiversarestillexpectedtoworkascaregiversfortwoyearswithinafour-yearperiod210andareonlyallowedtoworkfortheemployerlistedontheirworkpermit.211

203LawCommissionofOntario,VulnerableWorkersandPrecariousWork:FinalReport(2012),online:<http://www.lco-cdo.org/en/vulnerable-workers-final-report>(seesectionII.IdentifyingVulnerableWorkersandPrecariousWork).204CommitteeonEconomic,SocialandCulturalRights,ConcludingObservationsoftheCommitteeontheEconomic,SocialandCulturalRights,UNDocE/C.12/CAN/CO/4,E/C.12/CAN/CO/5(22May2006)atpara49.205CommitteeontheEliminationofDiscriminationagainsWomen,ConcludingObservationsonthecombinedeighthandninthperiodicreportsofCanada,UNDocCEDAW/C/CAN/CO/8-9(18November2016),atpara39.206CitizenshipandImmigrationCanada,“BackgrounderImprovingCanada’sCaregiverProgram”(31October2014),online:<http://news.gc.ca/web/article-en.do?nid=898719>.207EmploymentandSocialDevelopmentCanada,“FamiliesHiringIn-HomeCaregivers”(15December2015),online:<http://www.esdc.gc.ca/eng/jobs/foreign_workers/caregiver//index.shtml>.208FayFaraday,MadeinCanada:HowtheLawConstructsMigrantWorkers’Insecurity(Toronto:GeorgeCedricMetcalfCharitableFoundation,2012)at36.209CIC,Backgrounder,Ibid.210DebraBlack,“NewRulesforFederalLive-InCaregiversProgram”,TheTorontoStar(28November2014),online:<https://www.thestar.com/news/canada/2014/11/28/new_rules_for_federal_livein_caregivers_program.html>.

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• HighlivingexpensesinCanadacombinedwithlowwages212encouragecaregiverstocontinuetochoosethelive-inoptionwhereworkingconditionsaremostexploitative,eventhoughitisnolongermandatory.213

• Low-wageworkers,likecaregivers,facegreaterchallengesinbringingtheirfamiliestoCanada;unlikehigh-wageworkers,whosespousesareeligibleforopenworkpermitsandwhosechildrencangetstudypermits.214

• Allcaregiverswhoapplyforpermanentresidencynowmusthaveatleastoneyearofpost-secondaryeducation.215

In2016,theFederalGovernmentannouncedthattheywouldlowerthecapontheamountofCaregiverProgrampermanentresidencyapplications,from30,000peryearin2014to18,000.216Inaddition,thereisalreadyasignificantbacklogofapplicationstobeprocessed,resultinginanaveragewaittimeof49monthsforapermanentresidencyapplicationtobeprocessed.217InSeptember2016,theStandingCommitteeonHumanResources,SkillsandSocialDevelopmentandtheStatusofPersonswithDisabilitiesreleased21recommendationstotheFederalGovernmentpertainingtotheTemporaryForeignWorkerProgram218,includingthat:

• Thegovernmentgetridofemployeremployer-specificworkpermitstopreventabuse;• Immigration,RefugeesandCitizenshipCanadareviewthecurrentpathwaysto

permanentresidencyforalltemporaryforeignworkers,withaviewtofacilitatingaccesstopermanentresidencyformigrantworkerswhohaveintegratedintoCanadiansocietyandarefillingapermanentlabourmarketneed;

• Immigration,RefugeesandCitizenshipCanadaallocateadequateresourcestoallowforthetimelyprocessingofpermanentresidencyapplicationsforthosemigrantworkersthatarehiredundertheTemporaryForeignWorkerProgram;and

211CitizenshipandImmigrationCanada,“ExtendYourWorkPermit-Live-inCaregivers”(5November2014),online:<http://www.cic.gc.ca/english/work/caregiver/extend-stay.asp#change>.212FayFaraday,MadeinCanada:HowtheLawConstructsMigrantWorkers’Insecurity(Toronto:GeorgeCedricMetcalfCharitableFoundation,2012)at88.213MelissaCederqvist&EudoxieSallaz,“Live-inCaregiversandIntimidationintheWorkplace”(November2014)at7,online:<https://www.mfa.gouv.qc.ca/fr/publication/Documents/2014-11-30.8-Memoire.pdf>.214Ibid.215Ibid.216JeremyJ.Nuttall,“LiberalImmigrationChangesBadNewsforCaregivers,SaysAdvocate”,TheTyee(3November2016),online:<https://thetyee.ca/News/2016/11/03/Liberal-Immigration-Changes-Caregivers/>.217Ibid.218HouseofCommons,StandingCommitteeonHumanResources,SkillsandSocialDevelopmentandtheStatusofPersonswithDisabilities,Report:TemporaryForeignWorkerProgram(September2016)(Chair:BrianMay),online<http://www.ourcommons.ca/DocumentViewer/en/42-1/HUMA/report-4/page-111>.

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• EmploymentandSocialDevelopmentCanada,incollaborationwithrelevantstakeholders,reviewcurrentmonitoringandenforcementmechanisms,withtheobjectiveofaddressinggapsinemployercomplianceandtheprotectionofmigrantworkers’rights.Inaddition,aneffortshallbemadetomoveawayfromacomplaint-drivenmodelofprogramenforcement.219

Inresponsetotherecommendations,theFederal2017Budgetaddressedthetemporaryforeignworkerprogrambyprimarilyfocusingontheeconomicneedsofthemarket.WithrespecttothesafetyandrightsofTFWs,thegovernmenthascommittedto:

• Increasingon-siteinspectionstoensureemployercompliancewiththeprogram• InformingworkersoftheirrightsuponarrivaltoCanadaandtellingemployerstheir

rightsandresponsibilities• Fosteringinformationsharingbetweenprovincesandterritoriesandsupportingthe

formalizationofsupportservicesanddisputeresolutionprocesses• Continuingtocollaboratewithprovincesandterritories,foreigngovernmentsand

internationalorganizationstoaddresslabourexploitationassociatedwiththeactivitiesofrecruitersinCanadaandabroad220

Withrespecttoeliminatingemployer-specificpermits,thegovernmenthasrefusedonthebasisthatthepermitsaretiedtoLabourMarketImpactAssessmentsforspecificemployers,despitethehistoryoffemalecaregiversfacingexploitationatthehandsoftheirspecificemployersandneedingtochangeemployersfortheirsafety.Theprogramiscentredonemployerswhohaveconductedsuchanassessmentanddemonstratedaneedforatemporaryforeignworker,soemployer-specificpermitsareanecessity.However,theGovernmenthascommittedtoreviewingwaystoimprovethesafetyofworkersinlowskillstreams.Thegovernmentshouldreviewthisissueusingagenderedbasedlensandinconsultationwithwomen’sgroupssothatwomencaregiverscanbenefitfromemployer-specificpermits,withoutbeingputatriskofexploitation.Despitecontinuingdemandsforcaregivers,theimmigrationsystemfailstoaccordsufficientrecognitiontotheskillsoftheseworkers,thuspreventingthemfromcominginundertheregularadmissionsystem.Thefactthatcaregiverscomeinthroughaspecialprogram,andastemporaryforeignworkers,issymptomaticofthelongstandingfailureofCanada’simmigrationselectionprocesstoappropriatelyvaluetheskillsandexperiencesofwomenandcaregivers.

219Ibidat33.220GovernmentofCanada,ThepathforwardplanfortheTemporaryForeignWorkerProgramandtheInternationalMobilityProgram(10April2017),online:<https://www.canada.ca/en/employment-social-development/services/foreign-workers/reports/plan.html>.

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VI. RecommendationsTheGovernmentofCanadashould:

• Implementstrategiesthatwilladdressthestructuralinequalityofwomen,racializedwomen,Indigenouswomen,andmarginalizedwomen,inemploymentinalljurisdictions,includingemploymentequityprograms,higherminimumwagesand‘livingwage’strategies,increasedaccesstounionization,andenhancedresourcesandlegalcapacitiesforhumanrightsinstitutionsandlawtoaddresssystemicdiscriminationinemployment.

• RepealthePublicServiceEquitableCompensationActandreplaceitwithaproactivefederalpayequitylaw.

Thegovernmentsofallprovincesandterritoriesshould:

• Ensurethatthereiseffective,proactivepayequitylegislationinplaceintheirjurisdictionthatwilladdressandcorrectthelowerpayassignedto‘women’swork'andapplytobothpublicandprivatesectoremployers.

AccesstoJusticeforIndigenousandRacializedWomen(Article6)

I. CERDCommittee’sConcernsandPreviousRecommendationsIn2012,theCommitteeontheEliminationofRacialDiscrimination(CERD)recommendedthatCanada:

FacilitateaccesstojusticeforAboriginalwomenvictimsofgender-basedviolence,andinvestigate,prosecuteandpunishthoseresponsible;221[…]thattheStatepartystrengthenitseffortstopromoteandfacilitateaccesstojusticeatalllevelsbypersonsbelongingtominoritygroups,inparticularbyAboriginalpeoplesandAfricanCanadians.TheCommitteealsourgestheStatepartytoestablishwithoutfurtherdelay,amechanismtofillthegapcausedbythecancellationoftheCourtChallengesPrograms,aspreviouslyrecommendedbytheCommittee.222

Accordingly,signalingdiscriminationIndigenouswomenfacewhenapplyingtolegalaid,theCEDAWCommitteerecommendedin2016,thatCanada:

221CommitteeontheEliminationofRacialDiscrimination.ConsiderationofreportssubmittedbyStatespartiesunderarticle9oftheconvention:ConcludingobservationsoftheCommitteeontheEliminationofRacialDiscrimination:Canada,(4April2012),atpara17.222Ibidatpara.21.

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Increasefundingforcivillegalaid,andspecificallyearmarkfundsforcivillawlegalaidintheCanadaSocialTransfer,inordertoensurethatwomenhaveaccesstoadequatelegalaidinalljurisdictions,inparticularwomenwhoarevictimsofviolence,[Indigenous]womenandwomenwithdisabilities...223

WhiletherehavebeenmanyinitiativesinCanadatowardsamoreaccessiblejustice,thejusticesystemcontinuestopresentseveralbarriersforracializedwomen,andincertaincases,specificallyforIndigenouswomen.InadequatelegalaidservicesandlackofaccessandinaccuratemanagementofcasesofdomesticviolenceinwhichIndigenouswomenareinvolvedarethemajorproblemsfacebyminoritywomeninCanada.

II. LegalAid

a. ChronicUnderfundingTheChiefJusticeoftheSupremeCourtofCanada,TheHonourableBeverleyMcLachlin,hasstatedherbeliefthat“lackofaccesstociviljusticerepresentsthemostsignificantchallengetoourjusticesystem”.224Thereisamarkedgenderdifferenceinlegalaidusage:menaretheprimaryusersofcriminallawlegalaid,whilewomenaretheprimaryusersofcivillegalaid,especiallyforfamilylawmatters.225TheCBAassertsthatthelackofaccesstolegalaiddisproportionatelyaffectswomen,peoplewithdisabilities,recentimmigrants,membersofracializedcommunitiesandIndigenouspeople.226Theshrinkingfundingforcivillegalaidrestrictsaccesstolegalprotectionsforwomeninparticular.LegalaidinCanadahasneverfullyrecoveredfromthecutsthatoccurredinthe1990s.WhiletheGovernmentofCanadaprovidesadirecttransfertotheprovincesandterritoriesforcriminallegalaid,civillegalaidisincludedinthebasketofprogramstobepaidforbyprovincesandterritoriesundertheCanadaSocialTransfer(CST).227AsrequirementsonprovincesandterritoriestospendCSTmoneyoncivillegalaidwereremovedin1995,expenditureshavefallendrastically.Between1995and2012,witha21.2%dropinthelevelofpercapitadirect

223CommitteeontheEliminationofDiscriminationAgainstWomen.ConcludingobservationsonthecombinedeighthandninthperiodicreportsofCanada,(25November2016),atpara15.224BeverleyMcLachlin,“Foreward”,inM.Trebilcock,A.Duggan,L.Sossin,eds.MiddleIncomeAccesstoJustice(Toronto:UniversityofTorontoPress,2012).225AlisonBrewin,LegalAidDenied:WomenandtheCutstoLegalServicesinBC,CanadianCentreforPolicyAlternatives,(September2004)at9,online:<http://www.policyalternatives.ca/sites/default/files/uploads/publications/BC_Office_Pubs/legal_services.pdf>.226Ibid.227Ibid.

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serviceexpenditureoncivillegalaid.228Similarly,between1993and2012,therateofapprovedapplicationsforcivillegalaidfellby65.7%.229InJune,theBritishColumbialegalaidsocietyannouncedasuspensionofimmigrationandrefugeeservicesduetolackoffunding,gravelyaffectingimmigrantwomenwhohavebeenvictimsofviolence.AngelaMacDougall,ExecutiveDirectorofBatteredWomen'sSupportServicesinVancouver,notesthat40%oftheirclientsareimmigrantwomen230.The2017FederalBudgetattemptstorespondtothisbyallocating$62.9millionoverfiveyears,startingin2017–18,and$11.5millionperyearthereafter,toenhancethedeliveryofimmigrationandrefugeelegalaidservices.However,thebudgetfailstorecognizetheneedforincreasedfundingincivillegalaid,makingnomentionofitoroftheneedtoprovidesuchaidtoracializedandminoritygroupsandmorespecificallytoIndigenouswomen.Rather,thebudgetfocusesitsaccesstojusticeinitiativesin“innovativeandtechnologysolutions”andinprovidingservicesinbothofficiallanguages(FrenchandEnglish)withoutanyrecognitiontoancestrallanguages231.

b. EligibilityRequirements

In2008andin2016,theCEDAWCommitteerecommendedthattherebestandardizedminimumcriteriaforeligibilityforlegalaid.232Buttherecontinuestobeunevenaccesstolegalaidservicesacrossprovincesandterritories,aswellasnarroweligibilityrequirements,whichseverelycurtailwomen’saccesstoassistanceandrepresentation.

Onlylow-incomeapplicantsreceivelegalaidfunding.Yet,theincomecriterionforlegalaidisoftenbelowthepovertyline.233Thisdeniesmanywomenaccesstolegalaid,restrictingaccesstoonlythosewholiveindeeppoverty.

Evenwhereawomanmeetsthenarrowpovertyrequirement,eligibilityforfamilylawlegalaidisfurtherrestricted:insomejurisdictionsfamilylawcaseswillonlybefundediftherehasbeenviolence;inothers,onlycasesinvolvingchildren.

228CurrieA,TheStateofCivilLegalAidinCanada:BytheNumbersin2011-2012,CanadianForumonCivilJustice(May13,2013),online:<http://www.cfcj-fcjc.org/a2jblog/the-state-of-civil-legal-aid-in-canada-by-the-numbers-in-2011-2012-sthash.a29I51Pw.dpuf>.229Ibid230“B.C.LegalAidSuspendsImmigrationandRefugeeServicesDuetoLackofFunding”,CBCNews(28June2017),online:<http://www.cbc.ca/news/canada/british-columbia/b-c-legal-aid-suspends-immigration-and-refugee-services-due-to-lack-of-funding-1.4181352>.231GovernmentofCanada,Budget2017:Chapter3–AStrongCanadaatHomeandintheWorld,online:<http://www.budget.gc.ca/2017/docs/plan/chap-03-en.html#Toc477707441>.232CurrieA,TheStateofCivilLegalAidinCanada:BytheNumbersin2011-2012,CanadianForumonCivilJustice(May13,2013),online:<http://www.cfcj-fcjc.org/a2jblog/the-state-of-civil-legal-aid-in-canada-by-the-numbers-in-2011-2012-sthash.a29I51Pw.dpuf>.233Ibid.

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c. LackofprotectionincasesofdomesticviolencewhereIndigenouswomenareaffected

Asnotedabove,multipletimes,theRoyalCanadianMountedPolicehavefailedtoprotectIndigenouswomeninsituationsofdomesticviolence,withdualchargesbecomingaregularpracticeinsuchcases.IndigenouswomeninbothBritishColumbiaandSaskatchewanhavereportedtoHumanRightsWatchthatwhencallsaremadetothepolicebyIndigenouswomenandgirlsseekinghelpwithviolence,thesearefrequentlymetwithskepticismandvictim-blaming,andthatpoliceoftenarrestvictimsofabuseforactionstakeninself-defense234.Theshortcomingsbypoliceinadequatelydealingwithcasesofdomesticviolenceandreportingthemtojusticeaggregatedtothelackoflegalaidavailabletoracializedwomen,detersthemfrompursuingacaseanddiminishestheiraccesstojusticeandrighttoadueprocess.

III. RecommendationsTheGovernmentofCanadashould:

• Increasefundingforcivillegalaid.• AttachconditionstotheCanadaSocialTransfertoensurethatallprovincesand

territoriesprovidecivillegalaidservicesthatensurewomencanuselegalprotectionsandrightswhennecessary,andobtaineffectiveremedieswhentheirrightsareviolated,inparticular,womenexperiencingmaleviolence,Indigenouswomenandwomenwithdisabilities.

• EnsurethatprovincialgovernmentsestablishaspecialmechanismoramendalreadyexistingmechanismstoaccuratelyaddresssituationsofdomesticviolenceaffectingIndigenouswomen.

234HumanRightsWatch,“SubmissiontotheGovernmentofCanadaonPoliceAbuseofIndigenousWomeninSaskatchewanandFailurestoProtectIndigenousWomenfromViolence”(2017),online:<https://www.hrw.org/news/2017/06/19/submission-government-canada-police-abuse-indigenous-women-saskatchewan-and-failures>.

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IndigenousandRacializedWomeninDetention(Articles2,5,and7)

I. CERDCommittee’sConcernsandPreviousRecommendationsIn2007235and2012,236theCERDCommitteeexpressedconcernsandmaderecommendationsregardingthedisproportionatelyhighratesofincarcerationofIndigenouspeople,includingIndigenouswomen.OtherUNcommittees,suchastheHumanRightsCommittee,havealsoexpressedconcernsaboutCanada’sprisonsystem,notingtheunacceptablyhighratesofincarceratedIndigenouswomen,237theover-crowdingofdetentionfacilities,thesegregationofprisoners,lackofmedicalsupportforprisonerswithmentalhealthissues,andsuicidesofprisoners.238CanadahasfailedtomeaningfullyimplementtheCERDorHumanRightsCommitteerecommendationsandhasdonelittletoaddresstheunderlyingconditionsrelatedtotheover-incarcerationofracializedwomen.

II. LibertyandSecurityofthePersonThenumberofwomenimprisonedinCanadaisincreasingatanalarmingrate.Theoverallpopulationofwomeninprisonincreased60%since2003.239Between2003and2013,thenumberoffederallyimprisonedwomenincreasedby13.9%.240ThisishappeningatatimewhenCanada’snationalcrimerateisatitslowestsince1969.241Indigenousandotherracializedwomen,242aswellaswomenwithdisablingmentalhealthissues,243aredisproportionatelyincarcerated.Indigenouswomenarenow39%offederallysentencedwomen.244

235UNCERD,70thSess,ConcludingObservationsoftheCommitteeontheEliminationofRacialDiscrimination:Canada,UNDocCERD/C/CAN/CO/18(2007)atpara19.236UNCERD,80thSess,ConcludingObservationsoftheCommitteeontheEliminationofRacialDiscrimination:Canada,UNDocCERD/C/CAN/CO/19-20(2012)atpara12.237HumanRightsCommittee,ConcludingobservationsonthesixthperiodicreportofCanada,UNDocCCPR/C/CAN/CO/6,(13August2015),atpara18.238Ibidatpara14.239OfficeoftheCorrectionalInvestigator,AnnualReportoftheOfficeoftheCorrectionalInvestigator2012-2013,preparedbyHowardSapers(28June2013),online:<http://www.oci-bec.gc.ca/cnt/rpt/annrpt/annrpt20122013-eng.aspx>[OfficeoftheCorrectionalInvestigator,2013AnnualReport].240PublicSafetyCanada,2013AnnualReportCorrectionsandConditionalReleaseStatisticalOverview(2013)at39,online:<https://www.publicsafety.gc.ca/cnt/rsrcs/pblctns/ccrso-2013/index-en.aspx>.241StatisticsCanada,Police-reportedcrimestatistics,2013(23July2014)at1,online:StatsCan<http://www.statcan.gc.ca/daily-quotidien/140723/dq140723b-eng.pdf>.242MandyWesley,“Marginalized:TheAboriginalWomen'sExperienceinFederalCorrections”,PublicSafetyCanada(2012)at33-34,online:<https://www.publicsafety.gc.ca/cnt/rsrcs/pblctns/mrgnlzd/index-en.aspx>.243CorrectionalServicesCanada,File#394-2-88EvaluationReport:IntensiveInterventionStrategyforWomenOffenders(March2010)at21-22,online:<http://www.csc-scc.gc.ca/publications/092/005007-2006-eng.pdf>.244StatisticsCanada,Study:WomeninCanada:WomenandtheCriminalJusticeSystem(6June2017)at2,online:

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Theoverwhelmingmajorityofwomeninprisonhavehistoriesofabuseandsufferfrompost-traumaticstress.24585.7%ofallincarceratedwomenand91%ofIndigenousincarceratedwomenhaveexperiencedphysicaland/orsexualabuse.246Manyhaveneverreceivedtherapeuticsupport;rather,theyarelikelytobemedicatedandpathologized.Imprisonedwomenaremorelikelytobeimpoverished,under-educated247andunemployed248thanthegeneralpublic.64.2%offederallyincarceratedwomenaresinglemothers;24957.1%hadprimaryresponsibilityfortheirchildrenbeforetheywereimprisoned;250andthemajorityoftheirchildrenendupinthecareofthestate.Mostwomenarecriminalizedforbehaviouroccasionedbytheirattemptstonegotiatepoverty,251violentracism,andotherformsofdiscriminationrelatedtotheirmarginalizationandvictimization.252Soslightistheriskthatwomenposetopublicsafetythatthisriskcanandshouldbemanagedinthecommunity.

III. Over-incarcerationofRacializedWomenArecentreportcommissionedbyPublicSafetyCanadarevealedthattheover-incarcerationofIndigenouswomenisnothingshortofacrisis.253AcrossCanada,theover-incarcerationofIndigenouswomenisaformofsystemicdiscriminationwithinCanada’sjusticesystem.254Increasesinmarginalization,victimization,criminalizationandimprisonmentaredirectlyrelatedtothesystemicdiscrimination,poverty,violenceandisolationfacedbyIndigenousandotherracializedwomen.

StatsCan<http://www.statcan.gc.ca/daily-quotidien/170606/dq170606a-eng.pdf>245CanadianAssociationofElizabethFrySocieties,“LongTermEffectsofAbuseandTrauma”ElizabethFrySocietyResources,online:<http://www.caefs.ca/feature/fact-sheets/>[CAEFS,“LongTermEffectsofAbuseandTrauma”].246Ibid.247CorrectionalServiceCanada,TwentyYearsLater:RevisitingtheTaskForceonFederallySentencedWomen,preparedbyMeredithRobesonBarrettetal(July2010)at49,online:<http://www.csc-scc.gc.ca/research/005008-0222-eng.shtml>[CSC,TwentyYearsLater].248Ibidat51.249Ibidat39.250Ibidat41.251MargaretBeare,WomenandOrganizedCrime,CatalogueNoPS4-106/2010EPDF,DepartmentofPublicSafety,(2010)at10,24,29,online:<http://publications.gc.ca/collections/collection_2012/sp-ps/PS4-106-2010-eng.pdf>.252CanadianFeministAllianceforInternationalAction,Women'sInequalityinCanada(2008)at42,online:<http://socialrightscura.ca/documents/CEDAW/FAFIACanadaCEDAW2008.pdf>.253MandyWesley,“Marginalized:TheAboriginalWomen'sExperienceinFederalCorrections”,PublicSafetyCanada(2012)at33-34,online:<https://www.publicsafety.gc.ca/cnt/rsrcs/pblctns/mrgnlzd/index-en.aspx>.254OfficeoftheCorrectionalInvestigator,SpiritMatters:AboriginalPeopleandtheCorrectionsandConditionsReleaseAct,CatalogueNoPS104-6/2013E-PDF(October2012)atpara79.

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IV. Indigenouswomenprisonersrepresentthefastestgrowingprisonpopulationsin

Canada.Between2003and2013,theirnumbersincreasedbyover83.7%.255V. InSeptember2007,Indigenouswomenwere45%ofwomenclassifiedas“maximum

security”;256theyalsoaccountfor75%ofreportedincidentsofself-injury.257VI. TheclassificationsystemusedbytheCorrectionalServiceofCanada(CSC),which

administersfederalprisons,wasdesignedforapredominantlywhitemalepopulation.AlthoughCSCclaimsithasadjustedtheclassificationsystem,itstillfailstotakeintoaccountculturalorgenderspecificissues.258Indigenouswomenaremorelikelytobeclassifiedasmediumormaximumsecuritythannon-Indigenouswomen.259

VII. PrisonersofAfricanCanadianheritagerepresented2.9%oftheCanadianpopulationin2011,yetBlackwomenrepresented9.12%ofthefederalprisonerpopulationin2011-2012.260

VIII. ThemajorityofAfricanCanadianwomeninfederalpenitentiariesareincarceratedfordrugtrafficking.Manyoftheseprisonerswerecaughtcarryingdrugsacrossinternationalborders.Allwerepoor,andmosthadbeencoercedorforcedintotraffickingunderthreatsofviolence.261

Theover-representationofIndigenouswomenwithinthejusticesysteminCanadaisanincreasingproblem,andisdirectlyrelatedtowomen’sinequality,marginalizationandvictimization,includingtherelativelackofeconomicsupport,housingandservices,suchastherapeuticandmentalhealthservices,availabletowomen,particularlyinnon-urbanandnorthernCanada.262Further,thelackofavailablecommunity-basedservicesresultsinwomen

255OfficeoftheCorrectionalInvestigator,AnnualReportoftheOfficeoftheCorrectionalInvestigator2012-2013,preparedbyHowardSapers(28June2013),online:<http://www.oci-bec.gc.ca/cnt/rpt/annrpt/annrpt20122013-eng.aspx>.Seealso“AboriginalWomenNowMakeupOne-ThirdofCanadianFemalePrisonPopulation”,CBCNews(27May2015),online:<http://www.cbc.ca/news/canada/thunder-bay/aboriginal-women-now-make-up-one-third-of-canadian-female-prison-population-1.3089050>.256MandyWesley,“Marginalized:TheAboriginalWomen'sExperienceinFederalCorrections”,PublicSafetyCanada(2012)at33-34,online:<https://www.publicsafety.gc.ca/cnt/rsrcs/pblctns/mrgnlzd/index-en.aspx>.257OfficeoftheCorrectionalInvestigator,AnnualReportoftheOfficeoftheCorrectionalInvestigator2012-2013,preparedbyHowardSapers(28June2013),online:<http://www.oci-bec.gc.ca/cnt/rpt/annrpt/annrpt20122013-eng.aspx>.258MandyWesley,“Marginalized:TheAboriginalWomen'sExperienceinFederalCorrections”,PublicSafetyCanada(2012)at33-34,online:<https://www.publicsafety.gc.ca/cnt/rsrcs/pblctns/mrgnlzd/index-en.aspx>.259CorrectionalServiceCanada,Twentyyearslater:RevisitingTheTaskForceonFederallySentencedWomen,(July2010),online:<http://www.csc-scc.gc.ca/research/005008-0222-eng.shtml>.260OfficeoftheCorrectionalInvestigator,AnnualReportoftheOfficeoftheCorrectionalInvestigator2012-2013,preparedbyHowardSapers(28June2013),online:<http://www.oci-bec.gc.ca/cnt/rpt/annrpt/annrpt20122013-eng.aspx>.261Ibid.262JesseWinter,“Talkingprisonsandhumanrights”,YukonNews(7October2013),online:<http://www.yukon-news.com/news/talking-prisons-and-human-rights/>.

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beinggeographicallyandculturallydislocatedfromtheirfamiliesand/orcommunitiesofsupport,toserveprisonsentences.263

IV. TreatmentofWomenPrisonersAlthoughtheTaskForceonFederallySentencedWomen,264theArbourCommission,265theAuditorGeneral,thePublicAccountsCommittee,theCorrectionalInvestigatorandtheCanadianHumanRightsCommission266haveconsistentlyconcluded267thatwomenprisonersposealowrisktopublicsafetyandthattheyarelesslikelythanmentoreturntoprisononnewcharges,theCorrectionalServiceofCanada(CSC)continuestousethesameriskandneedsassessmenttoolsforbothmenandwomen.268

Womenprisonershavelessdiverseprogramming,fewerchoicesforemploymentrelatedtraining,andlessaccesstoservicesoverall.269Sections77and80oftheCorrectionsandConditionalReleaseAct270stipulatethattheCSCmustprovidegenderspecificandculturallyappropriateprogramming.However,womencontinuetobeprovidedwithprogramsandservicesdesignedforapredominatelywhite,maleprisonpopulation.271

263Yukon,DepartmentofJustice,“Sentencing”YukonGovernment(6March2014),online:<http://www.justice.gov.yk.ca/prog/cor/sentencing.html>.264CorrectionalServicesCanada,“CreatingChoices:TheReportoftheTaskForceonFederallySentencedWomen”(April1990),online:CSC<http://www.csc-scc.gc.ca/women/toce-eng.shtml>.265SolicitorGeneralofCanada,CommissionofInquiryintocertaineventsatthePrisonforWomeninKingston(Ottawa:PublicWorksandGovernmentServicesCanada,1996),online:<http://www.justicebehindthewalls.net/resources/arbour_report/arbour_rpt.htm>.266CanadianHumanRightsCommission,ProtectingTheirRightsASystematicReviewofHumanRightsinCorrectionalServicesforFederallySentencedWomen(December2003)at31,online:<http://www.chrc-ccdp.ca/sites/default/files/fswen.pdf>.267TheSociétéElizabethFryduQuébec,“FactSheetsAboutCriminalJusticeCriminalized&ImprisonedWomen”,online:<http://www.elizabethfry.qc.ca/en/fact_sheets/>.268ColleenAnneDell&RogerBoe,“ResearchReports:AnExaminationofAboriginalandCaucasionWomenOffenderRiskandNeedsFactors”(2000)CorrectionalServiceofCanadaat“Need”,online:<http://www.csc-scc.gc.ca/research/r94-eng.shtml>.269OfficeoftheCorrectionalInvestigator,AnnualReportoftheOfficeoftheCorrectionalInvestigator2012-2013,preparedbyHowardSapers(28June2013),online:<http://www.oci-bec.gc.ca/cnt/rpt/annrpt/annrpt20122013-eng.aspx>;MandyWesley,“Marginalized:TheAboriginalWomen'sExperienceinFederalCorrections”,PublicSafetyCanada(2012),online:<https://www.publicsafety.gc.ca/cnt/rsrcs/pblctns/mrgnlzd/index-en.aspx>.270CorrectionsandConditionalReleaseAct,SC1992,c20.271MandyWesley,“Marginalized:TheAboriginalWomen'sExperienceinFederalCorrections”,PublicSafetyCanada(2012),online:<https://www.publicsafety.gc.ca/cnt/rsrcs/pblctns/mrgnlzd/index-en.aspx>.

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V. MalePrisonStaffInits2006ConcludingObservations,afterreviewingCanada’sfifthreport,theUnitedNationsHumanRightsCommitteerecommended:“TheStatepartyshouldputanendtothepracticeofemployingmalestaffworkingindirectcontactwithwomeninwomen'sinstitutions.”272

TheGovernmentofCanadacontinuestoemploymalefrontlinestaffinitsprisons.273Despitetherealitythat91%offederallyimprisonedIndigenouswomenandtheoverwhelmingmajorityofallfederallysentencedwomenhavehistoriesofphysicaland/orsexualabuse,274since1995,CSChasemployedmenasfrontlineworkers.Inaddition,manyofthemenareinadequatelytrainedandhavenotbeenscreenedtoworkwithwomen.275Womenprisonersregularlycomplainofinappropriatecommentsandevensexualharassmentandassaultbymalestaff,butrefusetofileformalcomplaintsagainststaffforfearofretaliation.276

VI. Segregation(SolitaryConfinement)

In2006,theHumanRightsCommitteerequestedthatCanadaprovideinformation“regardingtheestablishmentofanindependentexternalredressbodyforfederallysentencedprisonersandindependentadjudicationfordecisionsrelatedtoinvoluntarysegregation,oralternativemodels.”277In2015,theHumanRightsCommitteerecommendedthatCanada“effectivelylimittheuseofadministrativeordisciplinarysegregationasameasureoflastresortandforasshortatimeaspossibleandavoidsuchconfinementforinmateswithseriousmentalillness”.278TheGovernmentofCanadahasnotdevelopedanexternalredressbody,279andwomeninCanadianprisonscontinuetobedisproportionatelysegregated.The1996ArbourCommission

272HumanRightsCommittee,ConcludingObservationsoftheHumanRightsCommittee(2006)UNdocCCPR/C/CAN/CO/5atpara18[HumanRightsCommittee,2006ConcludingObservations].273CSC,TwentyYearsLater,supranote99at20;seeCommitteeontheEliminationofDiscriminationagainstWomen,CombinedeighthandninthperiodicreportsofStatespartiesduein2014,Canada,UNDocCEDAW/C/CAN/8-9(13April2015)atparas236-244.274CAEFS,“LongTermEffectsofAbuseandTrauma”,supranote97.275CSC,TwentyYearsLater,supranote99at60-1;CorrectionalServicesCanada,TheCrossGenderMonitoringProject3rdandFinalAnnualReport,2013,online:CSC<http://www.csc-scc.gc.ca/publications/fsw/gender3/cg-22-eng.shtml>.276Ibid.277HumanRightsCommittee,ConcludingobservationsoftheHumanRightsCommittee:Canada,UNDocCCPR/C/CAN/CO/5,(20April2006),atpara18.278HumanRightsCommittee,ConcludingobservationsonthesixthperiodicreportofCanada,UNDocCCPR/C/CAN/CO/6,(13August2015),atpara14.279CorrectionalServicesCanada,“ResponsetotheCoroner'sInquestTouchingtheDeathofAshleySmith”,December2014at3.2-3,online:CSC<http://www.csc-scc.gc.ca/publications/005007-9011-eng.shtml#5.1>(wheretheGovernmentaffirmsitscurrentlawandpolicysurroundingsegregation)[CSC,“ResponsetotheCoroner'sInquest”].

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documentedhowwomenareaffectedbytheisolationofsegregation.280Segregationaggravatesand/orcreatesmentalhealthissues,281reducesmotivationandopportunitiestoparticipateinreintegrationactivities,282andhasbeendefinedasanactoftorturebytheUnitedNations.283

• Segregationisastatusandaplace.Womenwhoaresegregatedfromthegeneralprisonpopulationaresubjectedtooverlyrestrictiveconditionsofconfinement,includingbeingplacedinsegregationandbeingisolatedfor18+hoursadayandmayhavenohumaninteractionotherthanwithcorrectionalstaff,whentheyarephysicallyrestrained,orwhentheyarebeingcounted,orwhenfoodormedicationarepassedthroughaslotinthedoor.284

• In2012-2013,therewere390womenininvoluntarysegregation.28518.2%ofthewomenstayedinsegregationforlongerthan30days.286

• Indigenouswomenaremorelikelytobeinvoluntarilysegregatedandareheldinsegregationforlongerperiodsthatnon-Indigenouswomen.287

• Itistypicalforthereactionsofwomenwhoareheldinsegregationtoresultinadditionalcriminalchargesandthereforelongersentences.288

280JenaMcGill,“AnInstitutionalSuicideMachineDiscriminationAgainstFederallySentencedAboriginalWomenbytheCorrectionalServiceofCanadainViolationoftheUnitedNationsConventionontheEliminationofAllFormsofDiscriminationAgainstWomen”(2008)2:1Race/Ethnicity:MultidisciplinaryGlobalContexts89.281MandyWesley,“Marginalized:TheAboriginalWomen'sExperienceinFederalCorrections”,PublicSafetyCanada(2012),online:<https://www.publicsafety.gc.ca/cnt/rsrcs/pblctns/mrgnlzd/index-en.aspx>.282Ibid.283“Solitaryconfinementshouldbebannedinmostcases,UNexpertsays”,UNNewsCentre(18October2011),online:<http://www.un.org/apps/news/story.asp?NewsID=40097#.VwdnYuchxpk>.284KimPate,“WhyarewomenandgirlsCanada'sfastestgrowingprisonpopulation;and,whyshouldyoucare?”(GrantLoweryLecturedeliveredattheAnnualDefenceforChildrenInternational–CanadaGrantLoweryLecture,26April2011)at5,online:CAEFS<http://www.caefs.ca/wp-content/uploads/2013/05/Women_are_the_fastest_growing_prison_population_and_why_should_you_care.pdf>[KimPate,“WhyarewomenandgirlsCanada's”];BritishColumbiaCivilLibertiesAssociation,“SolitaryConfinementBackgrounder”(January2015),online:<https://bccla.org/wp-content/uploads/2015/01/Solitary-Confinement-Backgrounder-FINAL1.pdf>.285PublicSafetyCanada,2013AnnualReportCorrectionsandConditionalReleaseStatisticalOverview(2013)at65,online:<https://www.publicsafety.gc.ca/cnt/rsrcs/pblctns/ccrso-2013/index-en.aspx>.286Ibid.287OfficeoftheCorrectionalInvestigator,AnnualReportoftheOfficeoftheCorrectionalInvestigator2012-2013,preparedbyHowardSapers(28June2013),online:<http://www.oci-bec.gc.ca/cnt/rpt/annrpt/annrpt20122013-eng.aspx>;CorrectionalServicesCanada,ProfileofWomeninSegregation,(December2013),online:CSC<http://www.csc-scc.gc.ca/research/005008-r320-eng.shtml>.288CorrectionalServicesCanada,“ResponsetotheCoroner'sInquestTouchingtheDeathofAshleySmith”,December2014,online:CSC<http://www.csc-scc.gc.ca/publications/005007-9011-eng.shtml#5.1>;KimPate,“WhyareWomenandGirlsCanada'sFastestGrowingPrisonPopulation;And,WhyShouldYouCare?”(GrantLoweryLecturedeliveredattheAnnualDefenceforChildrenInternational–CanadaGrantLoweryLecture,26April2011)at5,online:CAEFS<http://www.caefs.ca/wp-content/uploads/2013/05/Women_are_the_fastest_growing_prison_population_and_why_should_you_care.pdf>

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• TheCanadianMedicalAssociationandtheUNSpecialRapporteurontorturehavelabeledsolitaryconfinement“cruelandunusualpunishment,”andtheSpecialRapporteurhascalledforanabsolutebanonsolitaryconfinementforyouthandthosewithmentalhealthissues.289

• ThejuryattheinquestintothedeathofAshleySmithrecommendedthatprisonerswithmentalhealthissuesneverbeplacedinsegregation.290

• Sincethattime,theHonourableLouiseArbour,theCanadianAssociationofElizabethFrySocieties,andtheCanadianandOntarioHumanRightsCommissionshaverecommendedanendtotheuseofsolitaryconfinementandrelatedformsofisolation,whetherlableedas‘segregation’,‘intensivepsychiatriccare’,‘medicalobservation’orothereuphemismsusedtolabelthesegregationandisolationofwomenprisoners,particularlyIndigenouswomenandthosewithdisablingmentalhealthissues.291

• Sinceattentionhasbeenplacedontheparticulartreatmentofwomen,theCorrectionalServiceofCanadahasvastlyreduceditsuse292andCAEFShasofferedtoworkwithCSCtoeliminateitsuseentirely.

• Between2011and2014nearlyhalfofsuicidesinfederalprisonsoccurredinsegregationcells.Mostprisonerswhohavediedinsegregationhadadocumentedhistoryofmentalhealthproblems.Yet,few,ifany,hadaccesstotherapeuticintervention.293

GiventheprofoundanddisproportionateimpactofsegregationonIndigenouswomenandwomenwithmentalhealthissues,theuseofsolitaryconfinementandsegregation/separationofwomenprisonersmustend.Placinglimitsonthedurationoftimethatawomanmaybe

;MarionBotsfordFraser,“LifeontheInstalmentPlan”,TheWalrus(March2010),online:<http://thewalrus.ca/life-on-the-instalment-plan/>.289KimPate,“WhyareWomenandGirlsCanada'sFastestGrowingPrisonPopulation;And,WhyShouldYouCare?”(GrantLoweryLecturedeliveredattheAnnualDefenceforChildrenInternational–CanadaGrantLoweryLecture,26April2011),online:CAEFS<http://www.caefs.ca/wp-content/uploads/2013/05/Women_are_the_fastest_growing_prison_population_and_why_should_you_care.pdf;BritishColumbiaCivilLibertiesAssociation,“SolitaryConfinementBackgrounder”(January2015),online:<https://bccla.org/wp-content/uploads/2015/01/Solitary-Confinement-Backgrounder-FINAL1.pdf>.290CorrectionalServicesCanada,“ResponsetotheCoroner'sInquestTouchingtheDeathofAshleySmith”,December2014,online:CSC<http://www.csc-scc.gc.ca/publications/005007-9011-eng.shtml#5.1>.291LouiseArbourtookthispositionatthe2016CAEFSConference--TheAWord:ReclaimingAdvocacy.292Attheendoffiscalyear2015-16,CSCreportedtherewere434individualsinadministrativesegregation.Ofthese,422weremenand12werewomen.293KimPate,“WhyareWomenandGirlsCanada'sFastestGrowingPrisonPopulation;And,WhyShouldYouCare?”(GrantLoweryLecturedeliveredattheAnnualDefenceforChildrenInternational–CanadaGrantLoweryLecture,26April2011)at5,online:CAEFS<http://www.caefs.ca/wp-content/uploads/2013/05/Women_are_the_fastest_growing_prison_population_and_why_should_you_care.pdf;BritishColumbiaCivilLibertiesAssociation,“SolitaryConfinementBackgrounder”(January2015),online:<https://bccla.org/wp-content/uploads/2015/01/Solitary-Confinement-Backgrounder-FINAL1.pdf>.

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placedinsegregationisnotenough.Asthemostrecentlyproposedlegislativeresponse294andhistoryreveal,suchlimitshaveonlyproventobearbitraryanddolittletoprotectthosewhoaremostvulnerable.

VII. ImprisonedWomenwithMentalHealthIssuesCutstohealthandsocialservices, includingsocialhousing,havecontributedtotheincreasingnumbersofwomenwithdisablingmentalhealth issues inprisonsanddetentioncentres.Thelack of services for women in the community contributes to the burgeoning population ofwomeninprison,particularlyIndigenouswomen,poorwomenandthosewithdisablingmentalhealth issues and intellectual disabilities. In what has been dubbed a “revolving door”295syndrome,thereisampleevidencethathomelesswomenwithmentalhealthissuesaremorelikelytobe imprisoned,andifreleasedfind italmost impossibletofindhousing,sotoooftenfindthemselvesre-incarcerated.296

Inits2006ConcludingObservations,afterreviewingCanada’sfifthreport,theUnitedNationsHumanRightsCommitteerecommendedthat:

The State party, including all governments at the provincial and territoriallevel, should increase its efforts to ensure that sufficient and adequatecommunitybasedhousingisprovidedtopeoplewithmentaldisabilities,andensure that the latter are not under continued detentionwhen there is nolongeralegallybasedmedicalreasonforsuchdetention.297

Inits2015ConcludingObservations,theHumanRightsCommitteenoteditsconcernaboutthe“insufficientmedicalsupporttodetaineeswithseriousmentalillness”andcalledonCanadatotakeappropriatemeasuresto“effectivelyimproveaccessto,andcapacityof,treatmentcentresforprisonerswithmentalhealthissuesatalllevels.”298Thisisadouble-facetedproblem:womenwithmentalhealthissuesareatparticularriskofbeingimprisonedand,insideprisons,theydonotreceivetreatmentorappropriatecare.

294BillC-56,AnActtoamendtheCorrectionsandConditionalReleaseActandtheAbolitionofEarlyParoleAct,1stsess,42ndParl,2017FirstReading,online:<http://www.parl.ca/DocumentViewer/en/42-1/bill/C-56/first-reading>.295StephenGaetz&BillO'Grady,“Homelessness,Incarceration,andtheChallengeofEffectiveDischargePlanning:ACanadianCase”inJ.DavidHulchanietal,eds,FindingHomePolicyOptionforAddressingHomelessnessinCanada(e-book,Toronto:CitiesCentreUniversityofToronto2009)at2,online:<http://www.samhsa.gov/homelessness-programs-resources>[Gaetzetal,Homelessness,Incarceration]. 296 ElizabethFryToronto,HousingNeedsAssessmentFacilitatingAccesstoHousingforCriminalizedWomeninToronto,preparedbySnmanagement(April2014),online:<http://www.efrytoronto.org/userfiles/files/efry_Housing%20Needs%20Assessment_WEB.pdf>. 297HumanRightsCommittee,2006Concludingobservations,supranote124atpara17.298 HRC2015ConcludingObservations,supranote89atpara14.

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• Federallysentencedwomenaretwiceaslikelyasmentohaveamentalhealthdisorderuponbeingadmittedtoprison;299andin2012/2013approximately75%ofwomenprisonersreceivedaCSC-basedmentalhealthservice.300

• TheOfficeoftheCorrectionalInvestigator(OCI)hasassessedthatCSCcannotadequatelydealwithmentalhealthissues,especiallywhenitcomestofederallysentencedwomen.TheOCIfoundthatCSChasanoverrelianceonforce,physicalrestraints,restrictiononmovement,limitationsoninteractionwithotherprisoners,andlimitationsonaccesstotransferstoappropriatepsychiatricormentalhealthresources.301

• Therearesignificantlyfewertransitionoptionsforwomenreleasedfromprisons,particularlythosewithmentalhealthissues.302

IntheNovember2015mandatelettertotheMinisterofPublicSafety,PrimeMinisterTrudeaurecognizedtheneedtoimproveservicesforincarceratedpeoplewithmentalhealthissues.ThePrimeMinistercalledontheMinisterto“addressgapsinservicestoIndigenousPeoplesandthosewithmentalillnessthroughoutthecriminaljusticesystem.”303Noactionhasbeentakenonthisyet.Worsestill,existingprovisions,suchassections29,77,80,81an84oftheCorrectionsandConditionalReleaseAct,whichprovidefortransfersoutofprisonstomentalhealth,women’sandIndigenousresourcesandcommunitiesrespectively,remainunavailableduetoexcessivelyrestrictivecorrectionspoliciesandpractices.

VIII. ConclusionManywomenandgirlprisonersinCanadaareunnecessarilyimprisonedastheyposenothreattopublicsafetyandwouldbebetterdealtwithinandbythecommunity.ThisisparticularlytrueforIndigenouswomen,whoaredisproportionatelyincarceratedandoftenimprisonedfarfromtheirhomecommunities.

WomenwhoareincarceratedinCanadaareoftenoverclassified,faceinhumanesegregation,andlackmentalhealthsupportsandaccesstoprogramming.Canadahasnotmadesignificantimprovementstothelivingconditionsofprisonsforwomenandthenumberofimprisonedwomenandgirlsisincreasing,despitetheirlowrisktosociety.

299CorrectionalServicesCanada,File#394-2-88EvaluationReport:IntensiveInterventionStrategyforWomenOffenders(March2011)at21-2,online:CSC<http://www.csc-scc.gc.ca/publications/092/005007-2006-eng.pdf>.300OfficeoftheCorrectionalInvestigator,AnnualReportoftheOfficeoftheCorrectionalInvestigator2013-2014,preparedbyHowardSapers(27June2014),online:<http://www.oci-bec.gc.ca/cnt/rpt/annrpt/annrpt20132014-eng.aspx#sV>.301OfficeoftheCorrectionalInvestigator,2013AnnualReport,supranote93.302Gaetzetal,“Homelessness,Incarceration”,supranote295.303 PrimeMinisterofCanada,“MinisterofPublicSafetyandEmergencyPreparednessMandateLetter”(13November2015),online:<http://pm.gc.ca/eng/minister-public-safety-and-emergency-preparedness-mandate-letter>.

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Researchaccumulatedinthelast50yearsshowsthatthemostbeneficialandcost-effectivewaytodealwithpreventingvictimizationandcriminalizationistoremedysocial,racial,genderandeconomicmarginalizationandpromotesocialdeterminantsofhealth.

IX. RecommendationsTheGovernmentofCanadashould:

• Restricttheuseofimprisonmentforwomenanddevelopnewprotocolstodecarceratewomen,particularlyIndigenouswomenandthosewithdisablingmentalhealthissues.

• Increaseincomesecurity,healthandeducationalmeasuressuchasincomeassistance,adequatehousing,andcommunitysupportsforwomenwithmentalhealthissuestoaddresstherealitythatwomenarebeingcriminalizedandincarceratedbecauseofpoverty,previousabuse,socialdisadvantage,racialization,anddisablingmentalhealthandintellectualcapacityissues.

• Putanendtothepracticeofemployingmalestaffworkinginfront-linecontactwithwomeninprisonsforwomen.

• Establishanindependentjudicialoversightastheexternalredressforfederallysentencedprisoners.

• Putanendtothepracticeofplacingwomenprisonersinsegregationorsolitaryconfinement.

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