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Forsaken: the Report of the Missing Women Commission of Inquiry

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Forsaken: the Report of the Missing Women Commission of Inquiry FORSAKEN The Report of the Missing Women Commission of Inquiry Volume III The Honourable Wally T. Oppal, QC Commissioner FORSAKEN The Report of the Missing Women Commission of Inquiry VOLUME III Gone, but not Forgotten: Building the Women’s Legacy of Safety Together The Honourable Wally T. Oppal, QC Commissioner British Columbia November 15, 2012 Library and Archives Canada Cataloguing in Publication British Columbia. Missing Women Commission of Inquiry Forsaken [electronic resource] : the report of the Missing Women Commission of Inquiry / Wally T. Oppal, Commissioner. Complete contents: Vol. I. The women, their lives and the framework of inquiry, setting the context for understanding and change - v. II. Nobodies, how and why we failed the missing and murdered women - v. III. Gone, but not forgotten, building the women’s legacy of safety together - v. IV. The Commission’s process. - Executive summary. Issued also in printed form. Includes bibliographical references. ISBN 978-0-9917299-7-5 1. Serial murder investigation--British Columbia. 2. Missing persons--Investigation --British Columbia. 3. Murder victims--British Columbia. 4. Pickton, Robert William. 5. British Columbia. Missing Women Commission of Inquiry. 6. Downtown-Eastside (Vancouver, B.C.). 7. Governmental investigations--British Columbia. I. Oppal, Wallace T II. Title. HV6762 B75 B75 2012 363.25’9523209711 C2012-980202-6 Access to Report Please contact the following if you are interested in receiving a copy of the report or a CD-ROM of the report: Distribution Centre-Victoria PO Box 9455 STN PROV GOVT Victoria, BC V8W 9V7 Phone: 250 952 4460 Toll free: 1 800 282 7955 Fax: 250 952 4431 Email: [email protected] URL: http://www.bcsolutions.gov.bc.ca/opc/ For general inquiries, please call Service BC Call Centre Hours of operation are 7:30 a.m. to 5 p.m. PST – Monday through Friday In Victoria call: 250 387 6121 In Vancouver call: 604 660 2421 Elsewhere in BC call: 1 800 663 7867 Outside British Columbia call: 1 604 660 2421 Email address: [email protected] Telephone Device for the Deaf (TDD) In Vancouver call: 604 775 0303 Elsewhere in BC call: 1 800 661 8773 TABLE OF CONTENTS PART 1 – WORKING TOGETHER TO BUILD A LEGACY FOR THE MISSING WOMEN ...........2 A. Introduction ....................................................................................................................2 B. Approach to Framing Recommendations ........................................................................5 C. Four Principles to Guide Reforms and Implementation Processes....................................8 D. Overview of Volume III .................................................................................................10 E. Taking Action to Directly Address Women’s Vulnerability to Violence and Serial Predation......................................................................................................11 PART 2 – BRIDGING THE GAP FROM 2002 TO 2012: OVERVIEW OF POLICE REFORMS AND CURRENT INITIATIVES .........................................20 A. VPD Initiatives in Response to the Missing Women Issue – 2002-2012 ........................20 Commitment to being a best-practices learning organization .....................................20 Reform of Missing Persons Unit, policies and practices ..............................................21 An integrated and effective community policing approach .........................................21 B. RCMP Initiatives in Response to the Missing Women Issue – 2002-2012 ......................23 C. Overview of Other Current Governmental and Community Initiatives ..........................25 National ......................................................................................................................26 Native Women’s Association of Canada .....................................................................26 Federal Provincial Territorial Coordinating Committee ...............................................26 Provincial ....................................................................................................................27 Highway of Tears initiatives ........................................................................................27 Advisory Council on Aboriginal Women ....................................................................28 Cities and Neighbourhoods .........................................................................................30 City of Vancouver ......................................................................................................30 DTES community-based initiatives .............................................................................30 PART 3 – LAYING THE FOUNDATION FOR EFFECTIVE CHANGE: ACKNOWLEDGING THE HARM AND FOSTERING HEALING AND RECONCILIATION ......34 A. Introduction ..................................................................................................................34 B. Assessment of Harm .....................................................................................................34 Personal losses ..........................................................................................................36 Ambiguous loss .........................................................................................................38 Loss of ceremonial rites .............................................................................................39 Severing of cultural connections in Aboriginal communities ......................................39 Ongoing physical and emotional distress ...................................................................41 Heightened sense of insecurity ..................................................................................42 Cynicism about police, government and community capacity to care about marginalized people .................................................................................................42 Profound loss of faith in police .................................................................................44 Harmful effects on police officers .............................................................................45 Loss of faith in justice system and government in terms of response ..........................47 C. Restorative Measures ....................................................................................................48 Recognition and acknowledgement ...........................................................................48 Redress and support ...................................................................................................49 Healing ......................................................................................................................50 Reconciliation ...........................................................................................................52 D. Recommendations for Restorative Measures .................................................................52 PART 4 – RENEWING OUR COMMITMENT TO EQUAL PROTECTION OF THE LAW THROUGH PRACTICAL MEASURES .....................................................................................56 A. Introduction ..................................................................................................................56 B. Equality in Policing Audits ............................................................................................58 C. Establishment of Positive Duties ....................................................................................60 General Duties of Non-Discrimination ........................................................................60 Police ........................................................................................................................60 Legislative recognition of the duty to warn .................................................................64 Specific Recognition of Duty to Aboriginal Peoples .....................................................65 Prosecution .................................................................................................................67 D. Measures to Facilitate the Participation of Vulnerable Witnesses ...................................71 E. Police Orientation, Training and Discipline ...................................................................76 Reorientation of policing ...........................................................................................76 Training ....................................................................................................................78 Informal discipline .....................................................................................................79 F. Recommendations for Equality-Promoting Measures .....................................................81 PART 5 – LISTENING, LEARNING AND RESPONDING: STRATEGIES TO PREVENT VIOLENCE AGAINST MARGINALIZED WOMEN IN THE DTES AND OTHER URBAN AREAS ...........................................................................86 A. Introduction ..................................................................................................................86 B. Transforming the Police-Community Relationship in the DTES ......................................88 Lessons learned .........................................................................................................91 Principles to guide collaborative engagement ............................................................92 Measures to foster
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