Progress report on Action Plan on Reconciliation with Indigenous Peoples - Fiscal year 2022–2023: Global Affairs Canada

Introduction

This report describes Global Affairs Canada’s (GAC) progress in fiscal year 2022 to 2023 toward the goals outlined in the Action Plan on Reconciliation with Indigenous Peoples, 2021-2025 (hereinafter “Action Plan”), and its accompanying implementation framework. The Indigenous Peoples Network (IPN) at GAC, divisions across the department and Canada’s diplomatic missions abroad continue to be engaged on the implementation of the Action Plan. The Action Plan aims to provide a framework for guiding the department’s efforts to advance the rights, perspectives and prosperity of Indigenous Peoples in Canada through its work in international assistance, foreign policy, international trade and consular services. The Action Plan outlines the following 6 goals:

1. Make GAC an inclusive and supportive space for Indigenous Peoples.
2. Increase all employees’ knowledge and understanding of the rights, histories, heritage, cultures and diverse perspectives of First Nations, Inuit and Métis and the importance of advancing reconciliation.
3. Expand and deepen partnerships with Indigenous Peoples in Canada and around the world to enhance their participation and respond to their identified priorities.
4. Promote respect for Indigenous Peoples’ rights and perspectives.
5. Enable First Nations, Inuit and Métis in Canada to access economic opportunities.
6. Strengthen the collection and use of data and the reporting on engagement with Indigenous Peoples.

Global Affairs Canada remains steadfast in its commitment to the goals outlined in the Action Plan and to supporting the implementation of the United Nations Declaration on the Rights of Indigenous Peoples (UNDRIP) in partnership with Indigenous Peoples. GAC recognizes the need to accelerate its efforts to advance reconciliation and strengthen its relationships with First Nations, Inuit and Métis Peoples in Canada based on a renewed nation-to-nation, government-to-government and Inuit-Crown relationship; on the principle of self-determination; and on the recognition of rights, respect, trust, cooperation and partnership.

Progress toward goals:

Goal 1: Make GAC an inclusive and supportive space for Indigenous Peoples.

Indigenous representation at all levels of government is an important metric for gauging the level of diversity in the workplace and of inclusivity of Indigenous Peoples at GAC.

Of the GAC population of substantive and indeterminate employees and employees with term of more than 3 months who are active or on leave with pay, 5.4% self-identified as Indigenous as of March 31, 2023. More than half (53.7%) of employees self-identifying as Indigenous are at the intermediate level, while 29.1% are junior level. Only 3.6% of employees self-identifying as Indigenous are at the executive level.

In line with the Action Plan and as part of ongoing efforts to implement GAC’s Anti-Racism Strategy 2021-2026, the Deputy Ministers’ Pilot Sponsorship Program (DMPSP), which officially began in May 2022, aims to increase representation of Indigenous, Black and other racialized people, and persons with disabilities in the executive group. As of March 2023, one Indigenous employee successfully graduated from the inaugural DMPSP’s cohort and was expected to be appointed to the executive group in fiscal year 2023 to 2024. While the DMPSP is one way to increase the number of Indigenous employees at executive levels, more work is required to address gaps in representation.

The Inclusion, Diversity, Equity and Accessibility team (HSIE) has worked in collaboration with HR Client Staffing Services (HSOS) to create a list of employees from equity-seeking groups who are ready to volunteer their time and become members of diversified selection boards during the hiring process. Staffing advisors are now actively offering the option of diversifying selection boards for hiring managers.

Public Services and Procurement Canada (PSPC) and its Indigenous sub-consultant, Innovation 7 (I7), continued their engagement with the Indigenous Peoples Network on a new cultural centre as part of the ongoing renovations of the Lester B. Pearson building. The objective of the consultations is to create a space that is informed by Indigenous teachings and values, such as inclusivity, kinship, storytelling, trust, transparency, connection to the elements, education and language. The cultural centre will serve as a place for Indigenous and non-Indigenous employees and invited guests to gather and will reflect the diversity and richness of Indigenous cultures across Canada. 

The Indigenous Peoples Network continued to offer guidance on how the department can take action to meaningfully advance reconciliation, including through biannual meetings with the Associate Deputy Minister for Foreign Affairs organized by the Anti-Racism Secretariat and through regular engagement with various divisions across the department. The Indigenous Peoples Network hosted several gatherings over the 2022 to 2023 fiscal year to provide an opportunity for Indigenous employees to connect with each other and with elders, including hosting a medicine bag making workshop during Indigenous History Month.

Goal 2: Increase all employees’ knowledge and understanding of the rights, histories, heritage, cultures and diverse perspectives of First Nations, Inuit and Métis and the importance of advancing reconciliation.

Throughout fiscal year 2022 to 2023, GAC provided training and tools to employees on the rights, history, heritage, cultures and diverse perspectives of First Nations, Inuit and Métis peoples. Training materials were offered by the Canadian Foreign Service Institute (CFSI) and the Canada School of Public Service (CSPS) and many employees participated in experiential learning. Teams across the department organized and participated in Kairos Blanket Exercises, including teams from Partnerships for Development Innovation Branch (KFM), Sub-Saharan Africa Branch (WGM) and the Anti-Racism Secretariat (HSIA), as well as new Foreign Service Officers as part of the Foreign Service Onboarding Program (FSOP) and others.

Additionally, FSOP employees participated in a tour of the Canadian Museum of History to learn more about the history, cultural identity, artistic expressions, and traditional and contemporary ways of life of Indigenous Peoples in Canada. Many groups from the FSOP selected relations with Indigenous Peoples as the theme for their cross-Canada engagement project and have been actively meeting and further researching this topic as part of their outreach preparations.

In fiscal year 2022 to 2023, GAC offered a training session entitled “Reconciliation with Indigenous Peoples: Global Affairs Canada’s Role” to respond to the Truth and Reconciliation Commission’s Call to Action 57. This training presented the department’s efforts to advance international Indigenous issues (policy priorities and activities) and to engage with Indigenous Peoples at home and abroad. The session also provided an overview of international agreements, legislation and decisions or case law that direct current policy and practice, including those regarding consultations and engagement with Indigenous Peoples. CFSI’s “Advancing Human Rights Internationally” course included a segment dedicated to the advancement of Indigenous rights. Employees were also encouraged to participate in related training opportunities offered by the CSPS.

The Global Issues and Development Branch Diversity and Inclusion Working Group invited all GAC employees to participate in a panel discussion entitled “Climate Solutions: Listening to Indigenous Leaders,” which was led by Indigenous scholars and activists working on climate change solutions. This panel provided staff members with the opportunity to learn more about Indigenous leadership and approaches to climate solutions with a view to informing and facilitating reflection about our departmental approaches.

Goal 3: Expand and deepen partnerships with Indigenous Peoples.

A working group comprising representatives from the Assembly of First Nations, Inuit Circumpolar Council Canada, Métis National Council and Global Affairs Canada was created in February 2022 to develop a call for proposals for the $15-million Indigenous Peoples Partnering for Climate initiative. By March 2023, the group had met 15 times to discuss a wide range of issues, including the intent, design and launch of the call for proposals and to assess concept notes. This engagement process will continue in fiscal year 2023 to 2024, when the working group will assess full proposals. Meaningful engagement enabled Indigenous priorities to guide the initiative and relationship-building will remain a priority for Global Affairs Canada throughout this funding initiative.

On June 22 to 23, 2022, Canada hosted its Indigenous Peoples Economic and Trade Cooperation Arrangement (IPETCA) Endorsement Ceremony and an Indigenous Trade Symposium, which were attended by 200 in-person participants and several thousand viewers online. Attendees included: representatives from multiple Indigenous organizations and businesses in Canada; government and Indigenous delegates from Australia, New Zealand, and Chinese Taipei; and Elders and knowledge keepers from First Nations, Inuit, and Métis communities.

Following the IPETCA Endorsement Ceremony and the Indigenous Trade Symposium, GAC conducted an open call for Indigenous individuals interested in serving as Indigenous representatives from Canada on the IPETCA Interim Body. The IPETCA Interim Body’s purpose was to develop a governance framework for IPETCA’s permanent body, the Partnership Council.  GAC, in consultation with ISC and CIRNAC, selected two individuals. Interim Body meetings began in November 2022.

On September 21, 2022, Minister Joly co-hosted a closed-door roundtable entitled “Embedding an Indigenous Approach to Foreign Policy” with her counterparts from Australia and New Zealand. The event, held at the Australian Permanent Mission on the margins of UNGA High-level Week, offered an opportunity for the foreign ministers, Indigenous leaders and UN stakeholders to share examples of Indigenous engagement and pathways to building an inclusive approach to foreign policy making.

In advance of the Organization of American States General Assembly in October 2022, GAC and CIRNAC met with representatives of Indigenous Peoples in Canada, including the American Council of Indigenous Peoples (ACIP), the Manitoba Métis Federation (MMF), the Assembly of First Nations (AFN), the BC Treaty Commission and members of the Coalition for the Human Rights of Indigenous Peoples. The objective of the meeting was to engage on the theme and topics of the Assembly and to discuss the status of the American Declaration on the Rights of Indigenous Peoples (ADRIP). On the margins of the General Assembly, Minister Joly met with Peruvian Indigenous leaders and civil society partners at the Museo Larco to discuss collaboration on human rights, democracy and reconciliation with Indigenous communities.

Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC) continued to convene meetings of the ad hoc Indigenous Working Group on Resolution Negotiation and Enhanced Participation with support from Global Affairs Canada. The Working Group is composed of Indigenous experts and seeks to ensure that Indigenous voices and perspectives inform Canada’s negotiating positions on resolutions at various United Nations forums, the World Health Organization and the Committee for Population and Development. While initially formed to support work on the enhanced participation of Indigenous Peoples at the UN and the annual UNGA and Human Rights Council resolutions on the rights of Indigenous Peoples, it has since expanded to inform resolutions generally in both forums. In fiscal year 2022 to 2023, text proposed by the Working Group and the full capitalization of Indigenous Peoples were successfully integrated into various resolutions.

In November 2022, CIRNAC and GAC actively participated in an expert workshop on possible ways to enhance the participation of Indigenous Peoples in the work of the Human Rights Council. Canada’s positions were informed by priorities identified by members of the Working Group, allowing for a coherent and organized approach.

Several activities were organized to continue fostering contacts with Indigenous partners in order to help facilitate participation in international and bilateral Arctic events. In October 2022, Governor General Mary Simon made a State Visit to Iceland, where she spoke to a large international audience (Arctic Circle Assembly) and met with Iceland’s political and government leaders, underscoring key elements of the Arctic and Northern Policy Framework and highlighting Canada’s approach to engaging with Indigenous Peoples and Northerners. In February 2023, Governor General Simon undertook a State Visit to Finland, where she shared her experience of Indigenous reconciliation in Canada with Finland’s Prime Minister and President in the context of Finland’s own Truth and Reconciliation Commission. She also exchanged with Sami representatives on education and climate change in the Arctic. In January 2023, during a visit organized by the Canadian Embassy in Sweden, a residential school survivor spoke with the Chair of Sweden’s Truth Commission and with the Stockholm Sami Association.

Under the Department of Justice’s leadership, GAC continued to work towards implementing the UN Declaration on the Rights of Indigenous Peoples Act (UNDA). UNDA Action Plan measure 72 seeks to bring greater coherence and consistency to the way federal departments engage with Indigenous Peoples on international issues that affect them. This Action Plan measure was submitted jointly by Inuit Tapiriit Kanatami (ITK) and the Metis National Council (MNC) in fall 2022. Global Affairs Canada actively engaged ITK and the MNC to co-develop the text of the proposed measure for inclusion in the UNDA Action Plan.

Global Affairs Canada conducted a series of 4 focus groups with Indigenous participants representing 10 different Indigenous governments to seek feedback on a proposed interim approach regarding the language of international legal obligations in governance agreement and modern treaty negotiations. The updated language is better aligned with renewed relationships between the Government of Canada, Indigenous governments and domestic UNDRIP implementation commitments and will be used by Canadian federal negotiation teams.

Representatives of National Indigenous Organizations were invited to participate in a meeting of the Advisory Group of Canada’s National Action Plan (CNAP) on Women, Peace and Security (WPS). Representatives from the Assembly of First Nations, the Congress of Aboriginal Peoples, the Native Women’s Association of Canada, Pauktuutit Inuit Women of Canada, and Women of the Métis Nation have regularly attended these meetings since GAC began co-hosting them in 2019. The CNAP Advisory Group meetings allow participants to hear directly from women Indigenous leaders on how the WPS agenda can apply to their work, as well as from other federal departments on the work being undertaken on Truth and Reconciliation.

The GAC-led Indigenous Working Group on Trade (IWG) remains active, continuing to meet regularly and providing email updates in between meetings. Established by GAC in September 2017, the group includes National Indigenous Organizations, Modern Treaty Partners, Indigenous groups and business associations, and certain legal and policy experts. Officials actively engage with the IWG through ongoing dialogue on a wide range of trade and investment issues that the IWG identifies as important for Indigenous Peoples in Canada, which in turn informs Canada’s negotiating positions.

Goal 4: Promote respect for Indigenous Peoples’ rights and perspectives.

Canada welcomed the UN Special Rapporteur on the Rights of Indigenous Peoples in March 2023; the Special Rapporteur on the Rights of Indigenous Peoples’ last visit to Canada was in October 2013. The Government of Canada has extended a standing invitation to all UN Human Rights Council Special Procedure Mandate Holders. This gesture of willingness to open Canada’s human rights record to scrutiny by the international community is an integral part of Canada’s commitment to addressing human rights issues at home.

In fiscal year 2022 to 2023, GAC commissioned an Indigenous-led report entitled Indigenous Peoples, Self-determination and Sustainable Development: A Human Rights Approach, which brings together the voices, experiences and contributions of Indigenous Peoples in Canada and around the world on a range of global challenges, such as environmental degradation, climate change, small arms proliferation and food insecurity, while providing powerful examples of how Indigenous leadership is helping to advance sustainable development. Contributing authors include the global Indigenous rights pioneer Chief Wilton Littlechild (Maskwacis Cree), Inuk advocate and international law expert Dalee Sambo Dorough, Red River Métis researcher Brielle Beaudin-Reimer, Haudenosaunee educator and journalist Kenneth Deer, Indigenous scholar and peace activist Binalakshmi “Bina” Nepram (Northeast India), Tuareg rights advocate Aicha Diallo (Mali), and the CHIRAPAQ Centre for Indigenous Cultures of Peru. The report was formally launched on April 21, 2023 at a virtual side event of the UN Permanent Forum on Indigenous Issues (UNPFII).

In order to reflect a strong Indigenous focus in cultural diplomacy, missions planned 14 initiatives totalling more than $91,000 in investment on the rights of Indigenous Peoples. In fiscal year 2022 to 2023, 100 initiatives leveraging the Mission Cultural Fund (MCF) included Indigenous artists in their implementation. On September 26, 2022, Global Affairs Canada’s Cultural Diplomacy Unit hosted an Indigenous Arts panel discussion for the department and mission network that enhanced awareness of Indigenous perspectives in cultural diplomacy.

GAC funded 10 projects targeting Indigenous People, totalling $8 million in funding in fiscal year 2022 to 2023. The principal objectives of the work were in the areas of human rights, health, agriculture, women’s rights and sexual reproductive health rights, education, ending violence against women and girls, etc. A further 90 projects involved Indigenous Peoples as one of several project components in a wide variety of sectors. Additionally, the Canada Fund for Local Initiatives funded over 20 projects that included Indigenous themes and dealt with issues like economic empowerment, the rights of Indigenous women and climate change mitigation.         

In order to enable Indigenous Peoples’ representation and meaningful engagement in international discussions and decisions that affect them, GAC announced contributions of $3 million over 3 fiscal years to support the participation of Indigenous Peoples at the UN,  of $2 million to the UN Voluntary Fund for Indigenous Peoples (UNVFIP) and of $1 million to the Indigenous Fellowship Programme. The UNVFIP enables grass root Indigenous representatives to attend key UN meetings and develop deeper knowledge of the UN mechanisms and bodies relevant to the problems affecting Indigenous populations. By participating in international forums, the grantees of the fund have been able to efficiently use international processes to address human rights violations and ensure action at a domestic level. The Indigenous Fellowship Programme provides extensive and comprehensive training and capacity-building modules for Indigenous representatives worldwide and are designed to strengthen their knowledge of the UN system and relevant international human rights instruments and mechanisms. It further aims to strengthen advocacy and leadership skills of Indigenous rights defenders so that they can better promote and protect the rights of their communities and constituencies at local and national levels.

The Natural Resources and Governance Division developed a guidance document called “Advancing Canada’s Feminist Approach to Natural Resource Governance and Management,” which was published internally in 2022. This guidance makes extensive reference to actions to promote the rights of and engagement with Indigenous Peoples, including the protection of human rights defenders.

The 5-year Responsible Business Conduct Strategy was launched in April 2022. Over the next 5 years, Global Affairs Canada will roll out elements of the Strategy action plan and raise awareness and promote responsible business practices, including continued engagement and consultation with Indigenous Peoples.  

Goal 5: Enable First Nations, Inuit and Métis peoples in Canada to access economic opportunities.

As part of efforts to promote access to economic opportunities, GAC works closely to support export-ready Indigenous businesses, seeks opportunities to improve Indigenous businesses’ access to the benefits of international trade, looks for new opportunities in GAC procurement, and provides Indigenous young professionals with unique learning experiences.

In addition to providing core Trade Commissioner Service (TCS) programs and services, the TCS helped Indigenous businesses access international market opportunities through both general and group-specific initiatives. The TCS was able to resume some planned initiatives as COVID-19 restrictions were lifted. The TCS participated in many panels and events, including an export panel at the Indigenous Prosperity Forum, which was the first in-person event of the National Aboriginal Capital Corporations Association (NACCA) since 2020. The TCS supported the Council for the Advancement of Native Development Officers (CANDO) Annual National Conference and coordinated TCS programming at the event, including a speech on the TCS and participation in a panel discussion on exporting. It also worked with the Canadian Aboriginal and Minority Supplier Council (CAMSC) to lead a delegation of 9 certified Indigenous-owned and Black-owned businesses to the National Minority Supplier Development Council (NMSDC) in New Orleans. Finally, the TCS also supported the international business development activities of national associations representing Indigenous businesses via CanExport Associations. In fiscal year 2022 to 2023, CanExport Associations approved close to $50,000 in funding to support the international business development activities of national associations representing Indigenous businesses.

The Trade and Economic Analysis Unit completed a survey of more than 2,600 Indigenous businesses in collaboration with the Canadian Council for Aboriginal Business (CCAB) and has begun to analyze the results and present findings at various conferences and venues. The first of 2 co-authored reports have been drafted and will be released publicly.

In trade negotiations, Canada continues to seek the Indigenous General Exception (IGE) to ensure that trade agreements do not prevent Canada from fulfilling its legal obligations to Indigenous Peoples in Canada. Canada also seeks a Trade and Indigenous Peoples Chapter, which reaffirms UNDRIP and promotes cooperation between parties to advance Indigenous Peoples participation in international trade and promote respect for the role and values of Indigenous Peoples, including Indigenous women. Canada continues to work toward IGEs and Trade and Indigenous Peoples chapters as part of its standard approach to all free trade agreement negotiations, and reached agreement on both in the context of the modernization of the Canada-Ukraine FTA. Global Affairs Canada also educates negotiating partners about why these requests are important, what they aim to achieve and why Canada’s relationships with Indigenous Peoples are a key government priority. Canada delivered presentations to the United Kingdom, Ecuador, Indonesia, Association of Southeast Asian Nations and its ten member states on Canada’s Trade and Indigenous Peoples approach in the context of trade negotiations. Canada has been engaging with the National Indigenous Organizations and with the Indigenous Working Group on trade negotiations and implementation activities.

In fiscal year 2022 to 2023, 6 organizations implementing the International Aboriginal Youth Internship (IAYI) carried out 106 internships for Indigenous youth. Of those, 18 were in person and 88 were virtual. These internships introduced Indigenous youth to Canada’s international assistance efforts and global citizenship.

Goal 6: Strengthen the collection and use of data and the reporting on engagement with Indigenous Peoples.

The Human Rights and Indigenous Affairs Division continues to work with all teams to identify gaps in disaggregated data collection across GAC business lines. The Advisory Group on GAC’s Action Plan with Indigenous Peoples and the Indigenous Peoples Network continued to play a critical role in promoting the importance of data collection and reporting on how GAC business lines engage with and provide support to Indigenous Peoples at home and abroad.

The Anti-Racism Secretariat developed a Performance Measurement Framework (PMF) to evaluate the implementation of initiatives and progress toward the outcomes outlined in GAC’s Anti-Racism Strategy, which aims to support representation at all levels and career development for Indigenous and other targeted employees, in addition to providing anti-racism training and engagement. The data collected through the Anti-Racism Strategy’s PMF will strengthen the quality of reporting against the Action Plan on Reconciliation, particularly with respect to elements of the Action Plan’s first and second goals.