Aboriginal Peoplf-S, Ttie Administration of Justice
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ABORIGINAL PEOPLF-S, TTIE ADMINISTRATION OF JUSTICE AND THE AT]TONOMY AGENDA: AN ASSESSMENT OF THE STATUS OF CRIMINAL JUSTICE REFORM IN CANADA \ryTftI REFERENCE TO THE PRATRIE REGION By LUKE MoNAMARA A Thesis Submitted to the Faculty of Graduate Studies in Partial Fulfillment of the Requirements for the Degree of MASTER OF LAWS Faculty of Law University of Manitoba Winnipeg Manitoba (c) Iuly 1992 NationalLibrary Bibliothèque nationale frH.¡þH r H oluanaoa du Canada Acquisitions and Direction des acquisitions et Biblìographic Services Branch des services bibliograPhiques 395 Wellington Street 395, rue Wellington Otlawa, Ontar¡o Ottawa (Ontario) K1A ON4 K1A ON4 Yout l¡le Votrc tèlèrence Oú lìle Nolrc élëence The author has granted an L'auteur a accordé une licence irrevocable non-exclus¡ve licence irrévocable et non exclus¡ve allowing the National Library of permettant à la Bibliothèque Canada to reproduce, loan, nationale du Canada de distribute or sell copies of reprodu¡re, prêter, distribuer ou his/her thesis by any means and vendre des copies de sa thèse in any form or format, making de quelque manière et sous this thesis available to interested quelque forme que ce soit pour persons. mettre des exemplaires de cette thèse à la disposition des personnes intéressées. 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ISBhi Ø-3L3-7797Ø-3 Canadä ABORIGINAL PEOPLES, THE ADI"IINISTRATION OF JUSTICE AND THE AUTONOMY AGENDA: AN ASSESS}ÍENT OF THE STATUS OF CRIMINAL JUSTICE REFORM IN CANADA WITH REFERENCE TO THE PRAIRIE REGION BY LUKE MCNA}IARA A Thesis submitted to the Faculfy of Graduate Shrdies of the University of Manitoba in partial fulfillment of the requirements for the degree of I"ÍASTER OF LAV.IS @ 7992 Porrission has been granted to the LIBR.ARY OF T}{E UNTYERSITY OF N4ANITOBA to lend or sell copies of this thesis, to the NATIONAL LIBRARY OF CANADA to mic¡ofilm this thesis and to lend or sell copies of the film, and UNTVERSITY À{ICROFILMS to publish an absEact of this thesis. The author ¡eseryes other publication rights, and neithe¡ the thesis nor extensive extracts ftom it may be printed or otherwise reproduced without the autho/s permission- ABSTR,ACT For more than 20 years the Canadian criminal justice system has been the subject of reforms designed to address overwhelming evidence of the system's disproportionate and discriminatory impact on Aboriginal peoples. For the most part, this approach has been unsuccessful, primarily because of a failure to recognize the critical nexus between justice reform and the demand of the First Nations, Métis and Inuit peoples of Canada for constitutional recognition of their right to govern in their own communities. An examination of several recent reports of Aboriginal justice inquiries suggests that this connection is finally being made, with the consequence that communiry-based autonomy has emerged as the underlying principle of justice reform initiatives. Recommendations for the establishment of comprehensive Aboriginal justice systems as a component of the inherent right of Aboriginal self-government are illustrative of a dramatic and encouraging re-direction of the reform agenda. However, before this major restructuring of the Canadian justice landscape can be effected, several key issues including the role of the Chaner of Rights and Freedorru, and the jurisdictional framework for Aboriginal justice autonomy, must be resolved. REST]ME Depuis plus de 20 ans, le système de justice criminel canadien a été le sujet de réformes qui ont été conçues pour aborder les impacts de la disproportionalité et de la discrimination du système judicière envers les peuples autochtones. En général, cette approche a connu peu de succès du au manque de connaissance des points critiques qui lient la réforme judiciaire et les demandes des Premières Nations, des Métis et des peuples Inuit du Canada pour la reconnaissance de leur droits constitutionnels qui leurs réservent le droit à I'auto-détermination de leur communauté respective. Un examen de plusieurs récents rapports de demandes de justice autochtones suggère qu'une entente a finalement été convenu, ayant pour conséquences l'émergence de I'autonomie de la communauté comme le principe de base des nouvelles initiatives de la réforme judicière. I-es recommendations pour l'éstablissement complet du système de justice autochtones comme une composante de droits inhérents des autochtones à I'auto-détermination gouvernementale, démontre un changement de direction dramatique mais encourageant de la réforme à I'ordre du jour. Cependant, avant qu'une restructuration majeure de la justice canadienne soit mis en application, plusieurs problèmes clés, tel la Charte des droits et libertés et I'autonomie de la structure de juridiction de la justice autochtones, devront être résolus. CONTENITS Abstract/Résumé I Contents ii Preface vii Acknowledegments xv Introduction I. Outline 1 II. The Aboriginal Agenda in Canada TA 1. Royal Commission on Aboriginal Peoples 5 2. Constitutional Reform: The 'Canada Round' 7 3. Inærnational I¡.w Developments 9 IrI. Aboriginal Justice: Research and Agenda Setting 11 PART A Chnpter I The 'Problem' of Aboriginal Over-representation in the Criminal Justice System t7 I. Introduction 18 II. The Identif,rcation and Explanation of a 'Problem' t9 ¿') /l III. The Evidence From the Prairie Region L- 1. Manitoba 24 2. Alberta 26 3. Saskatchewan 27 ry. Aboriginal People and the Australian Criminal Justice System 29 1. Introduction 29 2. Justice Indicators 32 V. A Critique of the Over-representation Approach 33 VI. Formulating An Appropriate Problem-Solution Model 37 iii Chapter 2 (Tinkering' With the Justice System: The Dominant Theme of Conventional Reform Strategies 4T I. Introduction 42 II. Cross-Cultural Training and Aboriginal Recruitment 45 il. Policing 51 1. The Special Constable Program 52 2. Autonomous Aboriginal Police Forces 54 IV. AboriginalCourtworkerPrograms 56 1. Manitoba 58 2. Saskatchewan 60 3. Alberta 60 V. Sentencing: Alternatives to Incarceration 6r VI. Aboriginal Justice Reform in Australia 65 1. The Anunga Rules 66 2. Sentencing: Taking Account of 'Aboriginality' 67 3. The Decriminalization of Public Drunkenness 69 VII. The Limitations of 'Tinkering' 70 Chapter 3 The Aboriginal Justice Inquiry of Manitoba 73 I. The Origins and Operation of the Inquiry 74 II. The Deaths of Helen Betty Osborne and John Joseph Harper 76 m. The Justice System and Aboriginal People 78 1. Creating Autonomous Justice Structures 81 2. Alleviating Conditions in the Existing System 84 ry. Responses to the Inquiry's Findings and Recommendations 90 1. Aboriginal Organizations 90 2. The Manitoba Government 92 V. Conclusion 94 1V Chapter 4 The Impact of Recent Aboriginal Justice Inquiries: A Review of Four Reports 96 I. Introduction 97 II. Alberta - Task Force on the Criminal Justice System and its Impact on the Indian and Métis People of Alberta 98 1. The Process 98 2. The Recommendations 98 3. The Response of the Alberta Government 102 m. Saskatchewan - Indian and Métis Justice Review Committees 103 1. The Process 103 2. T\e Recommendations 105 3. Responses to the Reports t12 IV. I-aw Reform Commission of Canada 113 1. The Reference 113 2. The Recommendations TT4 V. Australia - Royal Commission into Aboriginal Deaths in Custody 119 1. The Process 119 2.'lhe Recommendations 12l 3. Responses to the Report r24 VI. Conclusion t27 Chapter 5 The Emergence of Autonomy as a Justice Solution: A New Direction 128 I. Introduction r29 II. Perpsectives on Aboriginal Justice Reform: The Emergence of Autonomy-Based Solutions 131 1. The Canadian Reports i31 2. Australia - the Royal Commission into Aboriginal Deaths in Custody 135 m. Canada's Experience of Autonomous Aboriginal Justice Structures r39 v IV. Aboriginal Courts in Australia t4l 1. The Western Australian Aboriginal Justice of the Peace Scheme r42 2. Queensland's Aboriginal Courts 147 V. Tribal Courts in the United States 149 VI. The Prospects of Aboriginal Justice Systems in Canada PART B Introduction r57 Chapter 6 Aboriginal Self-Government: A Context for Justice Autonomy t62 I. Introduction 163 II. Background: 1982-1990 r66 1. Section 35 of the Corstitution Act, 1982 r66 2. The Penner Report 170 3. The First Ministers Conference Process t72 4. Self-Government Agreements 175 5. The Collapse of the Meech I:.ke Accord 179 m. Aboriginal Self-Government and the 'Canada Round' of Constitutional Reform 181 1. The Federal Government's Proposal 181 2. T\e Report of the Special Joint Committee 183 3. Aboriginal Organizations and the Negotiation Process 185 IV. The Content of the Aboriginal Right of Self-Government 196 V. The Relationship Between Autonomy-Based Justice Reform and Aboriginal Self-Government 203 Chaprer 7 Aboriginal Justice Systems and the Canadian Chafter of Rights and Freedoms 209 I. Introduction 2r0 II. Tribal Courts in the United States: The Impact of the Indian Civíl Righrs Act 2t2 v1 m. The Canadian Charter: Criminal Procedure 2t6 1. The Iægal Rights Provisions 2r6 2. Aboriginal Justice and Due Process 2r8 IV. Can the Charær Support Aboriginal Justice Sysúems Based on Collective Rights? 221 1. The Protection of Aboriginal Rights: Section 25 221 2. Section I 224 3. Section 33 225 V. Addressing the Charær Implications of Aboriginal Autonomy and the Administration of Justice 228 1. Liberalism and the Threat ûo Individual Rights 229 2. T\e Concerns of Aboriginal Women 231 3. Inærnational Human Rights Provisions 234 VI. The Conflict With Aboriginal Auúonomy Demands 236 Chnpter I Setting the 'Limits' of Autonomy: Developing a Framework for the Creation of Aboriginal Justice Systems 242 I.