Canada’s National Action Plan on Women, Peace and Security - Crown Indigenous Relations and Northern Affairs Canada and Indigenous Services Canada progress report - 2021-2022 and 2022-2023

Introduction

Canada’s second National Action Plan on Women Peace and Security (2017-2022) mentions some of the issues facing First Nation, Inuit, and Métis women and girls in Canada It states that, although Canada is not a conflict-affected state, Indigenous women, girls, and Two-Spirit, lesbian, gay, bisexual, transgender, queer, questioning, intersex and asexual (2SLGBTQQIA+) people in particular face intersecting discrimination and violence based on gender, race, socioeconomic status, and other identity factors, as well as underlying historic causes—in particular the legacy of colonialism and the devastation caused by the residential school system. The lessons-learned from the experiences and consequences of colonialism and the continued challenges faced by Indigenous Peoples in Canada will help improve Canada’s capacity to respond to challenges faced by women and girls abroad.

Furthermore, during engagement with Indigenous women in the context of Canada’s National Action Plan, Indigenous women’s organizations and partners have been clear that the security of Indigenous women, girls, and 2SLGBTQQIA+ people is an important challenge and concern.

Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC) and Indigenous Services Canada’s (ISC) Joint Implementation Plan is the first of its kind. It is a domestic blueprint of some of the Government of Canada’s initiatives to address the insecurity faced by Indigenous women, girls, and 2SLGBTQQIA+ people in Canada. These initiatives seek to address the violence against Indigenous women, girls, and 2SLGBTQQIA+ people, to promote gender equality, and to promote the empowerment of Indigenous women, girls, and 2SLGBTQQIA+ people wherever they reside.

CIRNAC and ISC’s Joint Implementation Plan also reflects the Government of Canada’s commitments regarding the United Nations Declaration on the Rights of Indigenous Peoples (the Declaration) and the Sustainable Development Goals. For example, Article 22 of the Declaration states that particular attention ought to be paid to the rights of Indigenous women and Global Goal #5 of the Sustainable Development Goals is focused on achieving gender equality and empowering all women and girls.

Since officially becoming supporting partners of Canada’s second National Action Plan on Women, Peace, and Security in November 2018, CIRNAC and ISC are committed to supporting its implementation. This joint implementation plan is another step towards the advancement of the Women, Peace and Security agenda domestically, and is informed by Indigenous and civil society organizations. It will be updated as objectives are met and priorities are further developed.

Crown Indigenous Relations and Northern Affairs Canada (CIRNAC) and Indigenous Services Canada (ISC) were happy to announce the publication of their joint implementation plan on Women, Peace and Security in June 2021. As two distinct departments that work collaboratively, CIRNAC and ISC are proud to work in partnership on the Women, Peace and Security mandate with the seven other implementing partners.

The departmental report below covers the period of April 1, 2021 to March 31, 2023. For every target, it provides a high-level snapshot of the progress achieved to date, outlines completed activities, and analyzes results and progress.

On this page

1. Recognizing the rights of indigenous women
2. Increasing participation of indigenous women and 2SLGBTQQIA+ people in consultation and engagement processes
3. Including a gender-based analysis plus lens in the development of policies affecting indigenous women, girls and 2SLGBTQQIA+ people
4. Eliminating known sex-based inequities in Indian registration
5. Developing more inclusive gender identifiers on documents
6. Building relationships with Indigenous women’s organizations
7. Working with North American partners to prevent violence against Indigenous women and girls
8. Moving forward with a response to the National Inquiry into Missing and Murdered Indigenous Women and Girls
9. Collaborating on Indigenous women’s wellbeing

1. Recognizing the rights of indigenous women

Target 1.1

Continue to review options for replacing outdated Indigenous rights-based policies that negatively impact Indigenous Peoples, including women and girls, with rights-based approaches that guide the negotiation of agreements and arrangements, which advance the self-determination of Indigenous Peoples, and can include traditional forms of governance respecting the inclusion and participation of women.

Baseline

• Colonial barriers, including the Indian Act, impede the exercise of Aboriginal and treaty rights of Indigenous women and girls, leading to their disempowerment and oppression in the context of community life.
• As of January 2020, there are 151 discussion tables or reconciliation tables that advance the self-determination of Indigenous peoples, including women and girls.
• As of January 2020, there are 38 modern treaties, self-government arrangements or agreements signed that advance the self-determination of Indigenous peoples, including women and girls.

Activities

• CIRNAC will continue to engage with Indigenous partners, including women, to replace outdated policies with a new rights-based approach.

Indicators

• Number of negotiation tables that advance the self-determination of Indigenous peoples, including women and girls.
• Number of modern treaties, self-government arrangements or agreements signed that advance the self-determination of Indigenous peoples, including women and girls.

Completed Activities (as of March 2023)

• As of March 2023, 186 discussion tables advance the self-determination of Indigenous peoples, including women and girls.
• As of March 2023, there are 56 modern treaties, self-government arrangements, or agreements signed that advance the self-determination of Indigenous peoples, including women and girls.

Results and Progress (as of March 2023)

• Canada is committed to supporting the self-determination of Indigenous Peoples. Enabling and supporting self-government allows for a transition away from colonial systems of administration and governance, including, where it currently applies, under the Indian Act.
• Work is currently underway across the country at 186 discussion tables, where matters of governance are advanced, such as traditional forms of governance respecting the inclusion and participation of women.
• GBA Plus principles are considered in the negotiation process in various ways including: whether a provision proposed for a self-government agreement or arrangement contains elements that might adversely affect women or men or other community sub-groups (e.g., youth, elders, single parents, people with disabilities, Two-Spirit, lesbian, gay, bisexual, transgender, queer, intersex, and additional people (2SLGBTQI+) Indigenous groups are encouraged to apply these principles, but they are not beholden to them.
• Treaties, self-government agreements, and other constructive arrangements concluded at negotiation tables lead to improved outcomes, which advance the self-determination of Indigenous groups, including Indigenous-led gender-based inclusion.

2. Increasing participation of indigenous women and 2SLGBTQQIA+ people in consultation and engagement processes

Target 2.1

Increase the participation of Indigenous women in consultation and engagement processes.

Baseline

• Indigenous women currently face barriers to fully participating in governance activities and decision-making, including consultation and engagement processes.

Activities

• CIRNAC and ISC will promote enhanced engagement with Indigenous women as they lead or advise on engagement and consultation activities.

Indicators

• Development of new consultation and engagement policies.
• Number of women consulted in the development of new consultation and engagement processes.

Completed Activities (as of March 2023)

• In 2022-2023, CIRNAC continued to ensure that advice provided at the whole-of-government level supported an inclusive approach to consultation and engagement activities.
• As work to renew the Updated Guidelines for Federal Officials to Fulfill the Duty to Consult is progressing, CIRNAC will continue to promote enhanced engagement with Indigenous women, 2SLGBTQI+ people, as they lead or advise on engagement and consultation activities. This will ensure the specific concerns of Indigenous women and 2SLGBTQI+ people are addressed as the Government of Canada leads engagement and consultation activities.
• Between August and December 2022, ISC held over 50 engagement sessions with First Nations, Indigenous organizations, and other interested or impacted individuals to discuss proposed amendments to the Indian Act. This included dedicated five sessions with Indigenous Women’s Organizations, including the Native Women's Association of Canada, and the Feminist Alliance for International Action.
• In July 2021, ISC distributed resources to over 1000 women’s organizations across the country to increase awareness on the legislative changes to registration under Bill S-3, An Act to amend the Indian Act in response to the Superior Court of Quebec decision in Descheneaux c. Canada and encouraged persons who are newly entitled to registration to submit an application for registration under the Indian Act.

Results and Progress (as of March 2023)

• As per the 2023 Federal Budget, the renewal of the Updated Guidelines for Federal Officials to Fulfill the Duty to Consult will take place over the next three years, resulting in new guidelines that will include improved guidance in support of inclusive processes.
• As regular practice, ISC’s GBA Plus Responsibility Center refers programs and sectors to engage with a wide diversity of Indigenous communities, governments, and organizations on various initiatives, including National Indigenous Women’s Organizations; and to include targeted engagements for diverse groups, including women, for community engagements.
• A significant number of women’s organizations expressed support for the proposed amendments, introduced under Bill C-38, An Act to amend the Indian Act (new registration entitlements) in December 2022, while acknowledging further work is needed to address issues in the registration and membership provisions of the Indian Act.

3. Including a gender-based analysis plus lens in the development of policies affecting indigenous women, girls and 2SLGBTQQIA+ people

Target 3.1

Including Indigenous women, girls and 2SLGBTQI+ people in policy development through the integration of GBA Plus into decision-making, policy, and service delivery.

Baseline

• The Government of Canada committed in its Action Plan on Gender-based Analysis (2016–2020), to use GBA Plus to ensure that the development of policies, programs and legislation includes the consideration of differential impacts on diverse groups of Indigenous women and men.

Activities

• CIRNAC and ISC will work with Indigenous partners to co-develop Indigenous GBA Plus frameworks and tools respectful of distinctions.
• CIRNAC and ISC will dedicate departmental resources for GBA Plus implementation.

Indicators

• Number of employees in CIRNAC and ISC who have completed GBA Plus training.
• Increase in the quality of GBA Plus within memoranda to Cabinet and other policy documents that are submitted within the Department.
• Co-develop a competent GBA Plus Toolkit with Indigenous partners.

Completed Activities (as of March 2023)

• Collaboration with Indigenous Women’s Organizations is ongoing. In the spirit of reconciliation and self-determination, CIRNAC and ISC continue to support the Native Women’s Association of Canada, Pauktuutit Inuit Women of Canada, and Les Femmes Michif Otipemisiwak to advance work on their distinctions-based culturally relevant GBA Plus frameworks and tools.
• CIRNAC and ISC continue to work collaboratively to ensure the work of these and other Indigenous partners, is incorporated in each department’s approach to culturally relevant GBA Plus, leading to tools and resources that better reflect Indigenous partners' realities and priorities. As CIRNAC and ISC continue to support Indigenous partners in this work, they will bring forward advice on how to include Indigenous considerations in all of the Government of Canada’s work on GBA Plus.
• GBA Plus teams at ISC and CIRNAC have partnered to develop and implement a new guidance document for applying GBA Plus in Memoranda to Cabinet. As of March 2023, the tool was being reviewed with key functions in ISC and CIRNAC, leading up to broader implementation.
• CIRNAC and ISC are members of the GBA Plus Learning Advisory Committee. The departments continue to work with and provide advice to the Department of Women and Gender Equality, the Canada School of Public Service, and other government departments to ensure that an Indigenous lens is included as part of a robust approach to intersectional policy analysis, learning products, and program design across the federal government.
• CIRNAC and ISC provided input into upcoming changes to the GBA Plus “Applying Tools and Best Practices” to ensure the inclusion of Indigenous culturally competent GBA Plus considerations.
• CIRNAC and ISC jointly develop and facilitate training and awareness sessions to enhance employees' skill and competency in the application of robust intersectional and culturally competent GBA Plus.
• ISC is committed to using GBA Plus to make its policies, programs, and work environments inclusive, culturally competent, and responsive to the unique needs of Indigenous women, men, and 2SLGBTQI+ people. ISC has made great progress in building its human resource capacity related to GBA Plus and internal GBA Plus governance structure, which includes a Community of Practice with volunteer members from across ISC, GBA Plus focal points in each sector and internal service group, and two executive level GBA Plus champions.
• CIRNAC is committed to using GBA Plus to attain better results in promoting self-determination, strong governance, and the prosperity of Indigenous Peoples. CIRNAC’s GBA Plus Centre of Expertise operates with four dedicated full-time employees and nominated GBA Plus Sector Focal Points and Branch Representatives. CIRNAC’s GBA Plus governance structure enables consistent application of robust intersectional and culturally competent GBA Plus to meaningfully inform decision-making.

Results and Progress (as of March 2023)

• CIRNAC’s GBA Plus Centre of Expertise and ISC’s GBA Plus Responsibility Centre continue to help support their respective departments in moving beyond a ‘checklist’ approach towards robust and integrated culturally-competent GBA Plus. Both teams assist sectors in incorporating quality GBA Plus analysis into key policy proposals, including Memoranda to Cabinet, Treasury Board Submissions, budget proposals, program architecture (e.g., Performance Information Profile) and departmental planning documents.
• At ISC, the quality of GBA Plus embedded into the initiatives and documents listed above has improved since 2021 based on assessment of integration of GBA Plus findings throughout policy, planning and reporting documents, application of an intersectional lens, and quality of evidence used to support findings. However, some areas of the department still experience difficulties applying GBA Plus as the current Government of Canada GBA Plus tools have limited Indigenous-specific considerations. Quantifying the rates of improvements in GBA Plus integration has also been challenging for ISC given the diverse contexts and realities of the departments program delivery and policy development. Further, there continues to be gaps in gender and Indigenous disaggregated data and evidence to support robust GBA Plus, and there remain opportunities to improve the use of qualitative data and Indigenous knowledge. ISC is attentive to these gaps, provides additional support where possible, and continues to pursue solutions to these challenges through cooperation with internal leads for data where appropriate.
• CIRNAC’s GBA Plus Centre of Expertise works to ensure that culturally-competent GBA Plus is undertaken on all departmental initiatives, including program and policy architecture and implementation. While the quality of GBA Plus has improved over time, challenges persist in fully incorporating Indigenous-specific considerations in the current Government of Canada GBA Plus tools. There continues to be gaps in gender and Indigenous disaggregated data and evidence to support GBA Plus assumptions, and there remain opportunities to improve the use of qualitative data and Indigenous knowledge.
• CIRNAC and ISC have not been tracking completion rates of Canada School of Public Service-hosted GBA Plus training among employees because their training does not yet include guidance on culturally-competent GBA Plus. Given CIRNAC and ISC’s unique mandates, CIRNAC’s GBA Plus Centre of Expertise and ISC’s GBA Plus Responsibility Centre have focused on creating and supporting the development of tools, training, and awareness sessions that center Indigenous-specific considerations in order to enhance employee's skills and competency in the application of robust intersectional and culturally competent GBA Plus.
• CIRNAC and ISC continue to work together in support of Indigenous Women’s Organizations’ work to advance culturally-competent GBA Plus resources. CIRNAC and ISC also work with the department of Women and Gender Equality (WAGE) to ensure that an Indigenous lens is included as part of a robust approach to intersectional policy analysis and program design across the federal government.
• CIRNAC and ISC are members of the GBA Plus Learning Advisory Committee to advise on and support the integration of Indigenous considerations in the Canada School of Public Service and WAGE GBA Plus learning products. CIRNAC and ISC provided input into upcoming changes to the GBA Plus “Applying Tools and Best Practices” to ensure inclusion of Indigenous culturally-competent GBA Plus considerations.
• CIRNAC is committed to using GBA Plus in order to attain better results in promoting self-determination, strong governance, and the prosperity of Indigenous peoples. CIRNAC’s GBA Plus Centre of Expertise operates with four dedicated full time employees and nominated GBA Plus Sector Focal Points and Branch Representatives. CIRNAC’s GBA Plus governance structure enables consistent application of robust intersectional and culturally-competent GBA Plus to meaningfully inform decision-making.

4. Eliminating known sex-based inequities in Indian registration

Target 4.1

All sex-based inequities in Indian registration are eliminated.

Baseline

• August 2015, decision in the Descheneaux case which declared key provisions of the Indian Act unjustifiably violated equality rights under the Canadian Charter of Rights and Freedoms by perpetuating sex-based inequities in eligibility for Indian registration between descendants of the male and female lines.
• Bill S-3, An Act to amend the Indian Act in response to the Superior Court of Quebec decision in Descheneaux c. Canada (Procureur général).

Activities

• Continue to share information with First Nations on the issues identified in the Collaborative Process and changes to the registration provisions under Bill S-3.
• Work to assess, address and simplify aspects of the application process for Indian registration.

Indicator

• Develop an implementation plan for the removal of the 1951 cut-off.
• Demonstrate progress towards implementing the removal of the 1951 cut-off.

Completed Activities (as of March 2023)

• In August 2019, following extensive consultation with First Nations and Indigenous groups, federal legislation Bill S-3, An Act to amend the Indian Act in response to the Superior Court of Quebec decision in Descheneaux v. Canada, fully came into force.
• In December 2020, the Minister of Indigenous Services tabled the third and Final Report to Parliament on the Review of Bill S-3 (sac-isc.gc.ca) and reported that all known sex-based inequities have been eliminated from the registration provisions of the Indian Act
• In December 2022, additional federal legislation, Bill C-38, An Act to amend the Indian Act (new registration entitlements), introduced consultation-derived solutions to address the residual effects of enfranchisement, eliminate a historical sex-based inequity in the membership provisions, enable deregistration by application and remove some outdated and offensive language in the Indian Act.
• Between August and December 2022, ISC held over 50 engagement sessions with First Nations, Indigenous organizations and other interested or impacted individuals. Building upon what was heard during prior consultations under the Collaborative Process, these sessions provided further feedback that was integral to informing the drafting of Bill C-38.

Results and Progress (as of March 2023)

• Bill S-3 eliminated all known sex-based inequities in the registration provisions of the Indian Act.
• While sex-based inequities have been eliminated from registration, Canada recognizes that residual effects of these previous sex-based inequities and non sex-based inequities in the registration provisions persist and require redress.
• Bill C-38 continues to work its way through Canada’s legislative process.
• In December 2022, the Government of Canada committed to co-develop and launch a collaborative consultation process with First Nations and Indigenous groups on remaining issues related to registration and band membership under the Indian Act, including the second-generation cut-off.

5. Developing more inclusive gender identifiers on documents

Target 5.1

Renew CIRNAC’s and ISC’s approach to the collection, use and display of sex and gender information to ensure the department is inclusive of transgender, non-binary and Two Spirit individuals.

Baseline

• Only binary sex and gender is collected and recorded in the Indian Register and displayed on the Secure Certificate of Indian Status.

Activities

• ISC will review and modify existing policies to align registration and card issuance policies with Canada’s policy direction to modernize departmental sex and gender information practices.
• The program for the issuance of the Secure Certificate of Indian Status will undertake a review to ensure a clear and appropriate rationale for the collection of sex or gender information. Where possible, the program will default to gender.

Indicator

• Coming into force of a national directive providing individuals a non-intrusive option for updating sex or gender in the Indian Register.
• Coming into force of a national directive providing individuals a non-binary gender option, signified by a culturally sensitive symbol, to be recorded in the Indian Register and displayed on the Secure Certificate of Indian Status.

Completed Activities (as of March 2023)

• In August 2020, a national Directive on Recording or Amending Sex or Gender Information in the Indian Register and on the Status Card came into force, implementing a non-intrusive change of gender identifier and introduced a non-binary gender identifier option.

Results and Progress (as of March 2023)

• Gender identifiers are recorded or amended in the Register and displayed on the status card based solely on the applicant’s declaration of their gender identifier: M (male), F (female) or X (another gender). This disaggregated information can be reported on as part of ISC’s efforts toward GBA Plus.

6. Building relationships with Indigenous women’s organizations

Target 6.1

Enhance the Government of Canada’s relationship with Indigenous organizations that advocate on behalf of Indigenous women.

Baseline

• Canada has signed a Memorandum of Understanding with Pauktuutit Inuit Women of Canada, and an Accord with the Native Women’s Association of Canada. Discussions are ongoing with other Indigenous women’s organizations to ensure that the voices of grassroots Indigenous women are taken into consideration in the development of policies and programs.

Activities

• CIRNAC and ISC will co-lead with the organizations a whole-of-government approach that supports activities in the context of the Memorandum of Understanding with Pauktuutit Inuit Women of Canada, and the Accord with the Native Women’s Association of Canada and continue to work with other Indigenous women’s organizations to support the advancement of the interests of grassroots Indigenous women.

Indicator

• Increased engagement of government departments with Indigenous women’s organizations through meetings and discussions.
• Enhanced engagement of Indigenous women’s organizations in policy and program development through a GBA Plus lens.

Completed Activities (as of March 2023)

• ISC has partnered with the Native Women’s Association of Canada, including granting funding over multiple years for engagement on topics ranging from water and wastewater, Child and Family Service Reform, health services and health legislation. ISC also partnered with the Native Women’s Association of Canada to undertake research, communications and outreach on various topics of interest through its affiliate organizations at the grassroots level.
• ISC has partnered with Pauktuutit Inuit Women of Canada, including grant funding over multiple years for engagement on topics ranging from shelters and transitional housing to support Inuit women, 2SLGBTQI+ individuals, and their children; health services; the involvement of Young Men and Boys related to the values of Inuit parenting.
• ISC has partnered with Les Femmes Michif Otipemisiwak including grant funding over multiple years for engagement on topics ranging from family violence prevention, child and family services reform, health services, and health legislation.
• ISC partnered with a variety of organizations and communities to ensure the elimination of sex-based inequities under S-3 is practically implemented among women and their descendants through access to registration.
• CIRNAC supported the Native Women’s Association of Canada, Pauktuutit Inuit Women of Canada, and Les Femmes Michif Otipemisiwak - Women of the Métis Nation to advance their whole-of- government relationship agreements by developing or updating their own culturally competent and distinctions-based GBA Plus frameworks and tools. As CIRNAC and ISC continue to support partners in this work, Indigenous Women’s Organizations will bring forward their perspectives in all of the Government of Canada’s work on GBA Plus and how to advance a more culturally competent approach to GBA Plus. CIRNAC also provides the three National Indigenous Women’s Organizations with funding to support the implementation of their respective relationship agreements.
• In Budget 2021, $36.3M over five years and $8.6M ongoing was announced for CIRNAC for the Supporting Indigenous Women’s and 2SLGBTQI+ Organizations initiative, which aims to ensure that the voices and perspectives of Indigenous women and 2SLGBTQI+ people become reflected in all aspects of decision-making that impact their lives, including policy, programs and legislation. In 2022-23, the department developed six new relationships with regional grassroots Indigenous women’s and 2SLGBTQI+ organizations across Canada. Through the Budget 2021 initiative, the department funded 41 projects to support over 23 Indigenous women’s and 2SLGBTQI+ grassroots organizations to engage with the community and help make meaningful advancements in policy, programs and legislation. CIRNAC held quarterly meetings with Indigenous women’s and 2SLGBTQI+ organizations to continue developing and strengthening relationships.
• CIRNAC is committed to building and strengthening relationships with Indigenous women’s organizations. In 2022-23, the Indigenous Women’s and 2SLGBTQI+ Relations Unit, in collaboration with ISC’s Partnerships team, hosted a meeting where an Indigenous women’s organization presented on their priorities and funding needs to several federal departments. As a result, new relationships were created between the organization and other government departments to advance shared priorities. Similarly, the Unit strengthened relationships with provincial, territorial and municipal partners to support the advancement of grassroots Indigenous women’s priorities and needs.

Results and Progress (as of March 2023)

• As regular practice, ISC’s GBA Plus Responsibility Center refers programs and sectors to engage with a wide diversity of Indigenous communities, governments and organizations on various initiatives, including with National Indigenous Women’s Organizations; and to include targeted engagements for diverse groups, including women, for community engagements.
• ISC continues to partner with a variety of organizations across the country to increase awareness and understanding of the legislative changes to registration under S-3 and encourage persons who are newly entitled to registration to apply for registration under the Indian Act.
• In advancing the UNDA Action Plan Measure 69, Pauktuutit finalized their Inuit-specific GBA Plus tool kit and began providing presentations to collaborate with federal partners. The Native Women’s Association of Canada also released their Culturally Relevant Gender-Based Analysis: A Roadmap for Policy Development. CIRNAC is committed to continuing collaboration with partners to ensure Indigenous women’s rights and gendered needs are reflected in programs, policies and legislation.
• In advancing the UNDA Action Plan Measure 70, CIRNAC has been building relationships with various national, regional and grassroots Indigenous women’s and 2SLGBTQI+ organizations. By working collaboratively to meet their engagement needs, the relationships continue to grow and strengthen, leading to increased collaboration and opportunities to identify and advance common interests and priorities such as influencing federal policy, programs and legislation.
• Although there has been substantial work within the target, organizations continue to face challenges, including limited organizational capacity, competing priorities, and staffing recruitment and retention issues.
• Organizational Capacity: Many regional and grassroots organizations have lower capacity (financial and human resources), which may impact their ability to participate in all engagement opportunities and activities. There is a significant need for stable and ongoing operations or “core” funding to support financial self-determination allowing organizations to prioritize their needs and interests and to increase and stabilize organizational capacity. Many rely on short-term, ad hoc project funding to maintain operations, often choosing between government funded activities that do not necessarily align with their own needs/interests to maintain operations and have their voices included in some areas, or pursuing their own priorities that may not be supported. This ultimately impacts their ability to effectively advocate and advance priorities of Indigenous women and 2SLGBTQI+ peoples.
• Competing Priorities: Since 2015 the Government of Canada has made historical investments to advance systemic and tangible change in the lives of Indigenous people across Canada. With an increased focus on Indigenous women, girls and 2SLGBTQI+ peoples there has been pressure on the department to work expeditiously toward implementing change while managing urgent and often competing priorities without increasing internal resources. The department is managing this pressure through collaboration and co-development with Indigenous partners and the implementation of Indigenous-led solutions.

7. Working with North American partners to prevent violence against Indigenous women and girls

Target 7.1

Work with North American partners to analyze violence against Indigenous women and girls in a meaningful, constructive, and forward-looking way to address the disproportionate level of violence and victimization they face in North America.

Baseline

• In June 2016, Canada, Mexico and the United States established the Trilateral Working Group on Violence against Indigenous Women and Girls in North America to address the disproportionate level of violence and victimization they face in North America.
• As of July 2019, the Working Group has held three meetings and five public side events at international conferences such as the United Nations Permanent Forum on Indigenous Issues, and the United Nations Commission on the Status of Women.

Activities

• CIRNAC and ISC will continue to work with Indigenous women and Indigenous organizations in support of meetings and activities of the Working Group.
• CIRNAC and ISC will develop a National Action Plan in response to the recommendations of the National Inquiry.

Indicator

• Number of meetings and activities held in the context of the agreement.
• Utilization of the National Action Plan to respond to recommendations.

Completed Activities (as of March 2023)

• One of the areas of work under CIRNA’s implementation plan is Working with North American partners to prevent violence against Indigenous women and girls (CIRNAC and ISC). Under this area, is Canada’s participation and coordination role in the Trilateral Working Group on Violence against Indigenous Women and Girls, alongside the United States and Mexico.
• According to CIRNA’s implementation plan the activity states that: “CIRNAC and ISC will continue to work with Indigenous women and Indigenous organizations in support of meetings and activities of the Working Group”.
• On September 6^th and 7^th 2023, Canada hosted the 5^th Convening of the Trilateral Working Group on Violence against Indigenous Women and Girls in collaboration with Indigenous leaders from Canada, the United States, and Mexico, global subject-matter experts, and officials from the governments of Mexico and the United States. Discussions at this year’s convening focused on human trafficking and access to justice.
• Through engagement with Indigenous leaders, as hosts, Canada ensured that voices of Indigenous women, young women, girls, 2SLGBTQI+ people, survivors, and families were at the centre of the dialogue.
• In addition to the convening, Canada hosted two engagement sessions with Indigenous women from Canada, United States and Mexico, one in person on the margins of the Permanent Forum, and one virtual.

Results and Progress (as of March 2023)

• CIRNAC, with support from ISC, has made considerable progress on the activity, “CIRNAC and ISC will continue to work with Indigenous women and Indigenous organizations in support of meetings and activities of the Working Group”, through both the Trilateral Working Group and consistent dialogue throughout the year, which led to a very successful Fifth Convening in September 2023.
• Mexico will become chair of the meeting in 2024, but CIRNAC, with support from ISC, will continue to work closely with Indigenous women and organizations throughout the process. In alignment with Canada’s commitment at the Fifth Convening of the Trilateral Working Group, CIRNAC and ISC are working to address and provide recommendations for the title of the Trilateral Working Group to improve its inclusivity of 2SLGBTQI+ people, understanding the nuances of language and titles between the three countries.
• One challenge for CIRNAC and ISC is balancing the competing interests of the three distinctions-based groups in Canada. Unlike Mexico and the United States, Canada must ensure that engagement, speaking roles, etc., are all balanced in representation from First Nations, Métis, and Inuit organizations. This can be a challenge in terms of scheduling, as well as balancing competing priorities and opinions. However, this did not impact the delivery of the Trilateral Working Group, and CIRNAC ensured that every aspect of the two-day event was balanced between the three groups.

8. Moving forward with a response to the National Inquiry into Missing and Murdered Indigenous Women and Girls

Target 8.1

Address the Calls for Justice of the National Inquiry into Missing and Murdered Indigenous Women and Girls.

Baseline

• Canada launched the National Inquiry into Missing and Murdered Indigenous Women and Girls (Missing and Murdered Indigenous Women and Girls) in September 2016. The Inquiry released its Final Report on June 3, 2019. The Inquiry ceased operations on June 30, 2019. In response to an Interim Report published by the Inquiry in November 2017, the Government of Canada announced measures including: $21.3M for health support and victim services supports; $10M towards the establishment of a commemoration fund; $1.25M towards a review of police policies; and $9.6M towards a national investigative standards and practices unit.
• As of July 2019, the current existing network of on-reserve shelters funded by the Family Violence Prevention Program is 46, including construction of five new shelters under Budget 2016 investments.
• As of July 2019, some 329 First Nations communities (55%) are served by the 41 ISC-funded shelters.
• As of July 2019, over 300 family violence prevention projects are funded annually on and off-reserve of which 90% are targeting First Nations on-reserve, and less than 10% are targeting First Nations off-reserve, Métis and/or Inuit.
• Starting in fall 2019, CIRNAC has provided funding to National Indigenous Organizations, including to the Native Women’s Association of Canada, Pauktuutit Inuit Women of Canada, Women of the Métis Nation, the Congress of Aboriginal Peoples, and 2 Spirits in Motion Foundation, to lead engagement sessions with their members to identify priorities from the Calls for Justice and best practices for addressing violence against Indigenous women, girls and 2SLGBTQI+ people.

Activities

• ISC will continue investments in women’s shelters, housing, education, health supports and the reform of child and family services.
• CIRNAC will accelerate work with federal ministers to develop and implement the Federal Strategy and with various provincial/territorial ministers and Indigenous leaders to develop and implement the National Action Plan in response to the National Inquiry into Missing and Murdered Indigenous Women and Girls’ Calls for Justice.
• CIRNAC will continue to update the Missing and Murdered Indigenous Women and Girls website, allowing the public to view progress made on the Calls for Justice in real time.
• CIRNAC will continue to support the governance structure, comprised of First Nations, Inuit, Métis women and 2SLGBTQI+ people, which is in place to oversee the development of the National Action Plan. It includes a Core Working Group and a National Family and Survivor’s Circle which serve as a liaison with the broader federal, provincial and territorial governments, Indigenous organizations and communities as well as be distinctions-based (First Nations, Inuit, Métis), and represent the urban and 2SLGBTQI+ communities. CIRNAC will continue to co-host virtual discussions into 2021.
• CIRNAC will provide $6M per year over the next five years dedicated to victim’s families supports. The 2020 Fall Economic Statement proposed addition Missing and Murdered Indigenous Women and Girls-related investments including $781.5M over five years starting in 2021–2022, and $106.3M ongoing to combat systemic discrimination against Indigenous peoples and expand efforts to combat violence against Indigenous women, girls and 2SLGBTQI+ people. This includes investments to support the implementation of the Gladue Principles, to develop Administration of Justice Agreements with Indigenous communities, and to launch a comprehensive Violence Prevention Strategy.

Indicator

• Finalization of a Federal Strategy compiling federal actions to address violence against Indigenous women, girls and 2SLGBTQQIA people by responding to the recommendations of the Inquiry.
• Number of on-reserve shelters.
• Number of communities with violence prevention programming.
• Number of family violence projects that are distinctions-based–Métis, Inuit, and First Nations.
• Number of counselling sessions provided to survivors, family members and others affected by the issue of Missing and Murdered Indigenous Women and Girls.

Completed Activities (as of March 2023)

Note: the completed activities for this section go beyond fiscal years 2021-2023 in order to highlight some of the important accomplishments on Canada’s response to the National Inquiry into Missing and Murdered Indigenous Women and Girls in the calendar year.

• The second Federal Pathway Annual Progress Report was released on June 3, 2023. The Annual Progress Report is an account of work completed by the Government of Canada during the 2022-2023 fiscal year on its commitments made in the Federal Pathway. The Annual Progress Report highlights key initiatives and programs that work towards the ultimate goal to end violence against Indigenous women, girls, and 2SLGBTQI+ peoples.
• With the support of 18 other federal departments and agencies, the MMIWG Secretariat coordinated and developed the second Federal Pathway Annual Progress Report, which provided an account of work completed toward commitments made in the Federal Pathway during the 2022-2023 fiscal year.
• Between 2021-2022 and 2022-2023 ISC spent $41.8 million to fund the operations of new shelters and transition homes and to support violence prevention activities. This includes initial start-up costs for selected shelter and transition home projects, project development costs to support proposal preparation, expedited construction, and culturally relevant violence prevention activities.
• On May 8, 2023, the Government of Canada announced the selection of 22 new projects through the Indigenous Shelter and Transitional Housing Initiative funded by ISC and Canada Mortgage and Housing Corporation, which represents over $81 million in capital funding and $15 million in ongoing operational support and will result in building 178 new units: 12 shelters, 9 transitional housing projects, and 1 mixed-use project. This initiative is Canada-wide and includes urban areas and the North and is not limited to on reserve.
• The MMIWG Secretariat coordinated the first national Federal-Provincial-Territorial-Indigenous Roundtable on Missing and Murdered Indigenous Women, Girls and 2SLGBTQI+ people which was held in January 2023. The Roundtable provided a venue fora dialogue on Missing and Murdered Indigenous Women, Girls, and 2SLGBTQI+ people, with a focus on how to improve cross jurisdictional collaboration, discuss areas of success, highlight areas of future focus related to MMIWG, and obtain further perspectives from Indigenous women, girls, 2SLGBTQI+ people, family members and survivors. The Roundtable was attended by more than 250 Indigenous women, survivors, family members and members of Indigenous organizations, as well as ministers from federal, provincial, and territorial governments.
• Through the Support for the Wellbeing of Families and Survivors of Missing and Murdered Indigenous Women, Girls, and 2SLGBTQQIA+ People program, the MMIWG Secretariat continued to provide funding to organizations for multi-year projects from the 2021-2022 Call for Proposals, and approved 14 projects for funding through the 2022-2023 Call for Proposals.
• In working towards achieving Call for Justice 1.7, which calls for an oversight body to monitor government progress on the Calls for Justice, the MMIWG Secretariat provided funding to support the Ministerial Special Representative’s mandate. In 2022-2023, the Ministerial Special Representative began engaging with Indigenous organizations, partners, families and survivors on a shared vision for a National Indigenous and Human Rights Tribunal and Ombudsperson.
• Budget 2023 provided funding to the MMIWG Secretariat to establish an oversight mechanism on MMIWG and respond to Call for Justice 1.10. To date, the Secretariat has undertaken a two-part engagement on what an oversight mechanism could look like: In the late summer and fall of 2022, the MMIWG Secretariat had a series of pre-engagement meetings with Indigenous partners to have initial conversations. Based on this initial engagement, from January to March 2023, an Indigenous company was contracted to conduct an engagement with Indigenous partners, based on the outcomes of the initial conversations. They have produced a report, in which they provide recommendations made by Indigenous partners for the oversight mechanism.

Results and Progress (as of March 2023)

Note: the completed activities for this section go beyond fiscal years 2021-2023 in order to highlight some of the important accomplishments on Canada’s response to the National Inquiry into Missing and Murdered Indigenous Women and Girls in the calendar year.

• As a result of the above-listed completed activities, the MMIWG Secretariat has made progress in advancing the following Calls for Justice:
• Call for Justice 1.6: Developing an oversight mechanism will work to eliminate jurisdictional gaps, enhance accountability, and progress in ending violence against Indigenous women, girls, and 2SLGBTQI+ people.
• Call for Justice 1.7: The Secretariat has supported the Ministerial Special Representative in their mandate to engage Indigenous Peoples on the establishment of an Indigenous and Human Rights Tribunal and Ombudsperson.
• Call for Justice 1.10: Work has begun to establish an independent oversight mechanism to report on the implementation of the National Inquiry’s Calls for Justice to Parliament.
• Call for Justice 3.7: The Support for the Wellbeing of Families and Survivors of Missing and Murdered Indigenous Women, Girls, and 2SLGBTQQIA+ People program was designed in collaboration with the National Family and Survivors’ Circle, in order to increase accessibility and remove barriers to support. This program has completed two Calls for Proposals since its inception.
• Call for Justice 5.6: The Support for the Wellbeing of Families and Survivors of Missing and Murdered Indigenous Women, Girls, and 2SLGBTQQIA+ People program guidelines were designed to fill existing gaps and expand the scope of activities eligible for funding, and also addresses Call for Justice 17.20 through its program guidelines and eligibility.
• Call for Justice 17.20: The Support for the Wellbeing of Families and Survivors of Missing and Murdered Indigenous Women, Girls, and 2SLGBTQQIA+ People program funds Indigenous organizations to engage in healing work, thereby supporting healthcare and child and family welfare.
• The MMIWG Secretariat navigated staffing shortages through the 2022-2023 fiscal year. This challenge did not impede the Secretariat from meeting its targets.
• ISC continues to implement its initiatives outlined in the Federal Pathway to Address Missing and Murdered Indigenous Women, Girls, and 2SLGBTQQIA+ People, which was launched in June 2021. This includes initiatives related to education, mental health and wellness, infrastructure, clean and safe drinking water, violence prevention, community safety, and addressing anti-Indigenous racism in health systems. For example:
  • Launched in 2022, ISC’s Pathways to Safe Indigenous Communities (Pathways Initiative) assists First Nations, Inuit, and Métis communities (on- and off-reserve) in implementing Indigenous-designed programs and services to improve community safety. The Pathways Initiative also specifically supports programs and services that address the safety of Indigenous women and girls and 2SLGBTQI+ People. In 2022-2023, $23.6 million in funding supported 59 community safety projects. An additional $20 million for the Pathways Initiative was announced in November 2022, and Budget 2023, which is being delivered over three years (2023-2024 to 2025-2026).
  • As of December 31, 2022, out of the $2.90 billion of Indigenous Community Infrastructure Fund’s targeted funding commitment (excluding operating expenses), ISC has invested $912 million, including:
    • $188.7 million spent under Water and Wastewater;
    • $326.4 million spent under Housing;
    • $328.3 million spent under School Facilities;
    • $32.6 million spent under Health;
    • $8.3 million spent under Other Community Infrastructure;
    • $9 million spent under Transfer of Service Delivery;
    • $88.5 million spent under Urban Infrastructure.
  • Through the Addressing Anti-Indigenous Racism in Canada’s Health Systems initiative, funding was flowed to partners including grassroots, regional, and national Indigenous organizations. Approximately 148 projects have been supported thus far, involving cultural safety, health systems navigation, patient advocacy, targeted data collection, midwifery and doula services, and increasing Indigenous representation in health and human resources.
  • As part of the Comprehensive Violence Prevention Strategy, in 2023-2024, ISC will continue to support the selection and construction of at least 38 new emergency shelters and at least 50 second-stage housing facilities with the Canadian Mortgage and Housing Corporation. ISC will also continue to provide culturally-appropriate enhanced services and family violence prevention activities for Indigenous communities. ISC also launches an annual Call for Proposals to fund violence prevention activities to further expand culturally relevant supports for Indigenous Peoples facing family violence. This initiative is Canada-wide and includes urban areas and the North and is not limited to on reserve.
• In 2022-2023, there were more than 9,000 hours of clinical counselling provided to Survivors, family members, and others impacted by the issue of MMIWG, provided directly through the MMIWG Health and Cultural Support Program. (Note that this total does not include counselling hours provided to Survivors, family members, and others impacted by the issue of MMIWG through other programs, such as Non-Insured Health Benefits and Indian Residential Schools Resolution Health Support Program. This total includes counselling provided through the BC First Nations Health Authority, for Q1-Q3 only).

9. Collaborating on Indigenous women’s wellbeing

Target 9.1

• Receive advice guidance and direction on issues impacting the health and wellness of First Nations, Inuit and Métis women and gender diverse people.
• Co-develop policy and service delivery options on issues impacting the health and wellness of First Nations, Inuit and Métis.

Baseline

• The formation of an Indigenous Women’s Wellbeing Advisory Committee consisting of Indigenous organizations and health organizations.

Activities

• ISC will continue to provide secretariat support to the Indigenous Women’s Wellbeing Advisory Committee.
• ISC will consider the advice of the Indigenous Women’s Wellbeing Advisory Committee in its decision-making process.
• ISC will co-develop policy and service delivery options that support distinctions-based health and wellness priorities.

Completed Activities (as of March 2023)

• ISC activities related to providing secretariat support to the Indigenous Women’s Wellbeing Advisory Committee; considering the advice of the Indigenous Women’s Wellbeing Advisory Committee in decision-making; and co-developing policy and service delivery options that support decisions-based health and wellness priorities are all ongoing.

Results and Progress (as of March 2023)

• ISC has provided secretariat support for the Indigenous Women’s Wellbeing Advisory Circle once every quarter since its inception. Planning and interim meetings are held with co-chairs regularly to ensure that meetings are focused on the priorities identified by the Committee.
• The Committee has advised ISC, as well as other departments, on various priorities, such as Indigenous Midwifery, GBA Plus, forced and coerced sterilization of Indigenous women, 2SLGBTQQIA+ issues, as well as specific health issues such as immunization.
• Based on advice provided by the Committee, funding for healing supports for survivors of forced and coerced sterilization has been provided to the Survivor’s Circle for Restorative Justice. This new organization will support a range of healing initiatives that support the physical, mental, spiritual and emotional wellbeing of survivors of forced and coerced sterilization.

Target 9.2

Develop a distinctions-based approach to identify and address Indigenous women’s issues.

Baseline

• There is a need for a distinctions-based approach to Indigenous women’s issues.

Activities

• ISC will continue to work with National Indigenous Women’s organizations and partners, including:
  • the Native Women’s Association of Canada on a broad range of health and wellness priorities and outcomes, including components of a Resiliency Centre pilot project;
  • Pauktuutit Inuit Women of Canada to identify and develop Inuit-specific approaches to community-based health and wellness initiatives for Inuit women and girls; and
  • Les Femmes Michif Otipemisiwak to identify and support Métis specific approaches to health and wellness.

Indicator

• Development of distinctions-based approaches to community and wellness initiatives for First Nations, Inuit and Métis women and girls.

Completed Activities (as of March 2023)

• ISC continues to work with National Indigenous Women’s Organizations through the Indigenous Women’s Wellbeing Advisory Committee. The Committee has advised ISC, as well as other departments, on various health and wellness distinctions-based priorities.
• Under Budget 2021, National Indigenous Women’s Organizations were provided capacity funding for human resources and organizational capacity to participate in the Indigenous Women’s Wellbeing Advisory Committee, and to advance their work related to restoring Inuit midwifery and traditional birthing practices; GBA Plus; forced and coerced sterilization; and anti-Indigenous racism.
• Under Budget 2021, some National Indigenous Organizations were provided with funding to help organizations in addressing Indigenous women’s health and anti-Indigenous racism issues in health systems.

Results and Progress (as of March 2023)

• ISC helped support various National Indigenous Women’s Organizations-led initiatives between 2021-23 the support distinctions-based approaches to community and wellness initiatives for First Nations, Inuit and Metis women and girls. Initiatives included things such as:
  • Reports on baseline information and early analysis of data regarding activities within Midwifery Education Programs to address anti-Indigenous racism
  • Various roundtables and forums to help promote collaboration in achieving systemic change in the delivery of health services
  • Communication products to promote awareness of issues such as informed consent and forced/coerced sterilization.
  • The development and/or publication of distinctions-based frameworks, guidelines, and/or toolkits on various health topics