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National Action Plan: Ending Violence Against Indigenous Women, Girls, and 2SLGBTQQIA+ People

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National Action Plan: Ending Violence Against Indigenous Women, Girls, and 2SLGBTQQIA+ People 2021 Missing and Murdered Indigenous Women, Girls, and 2SLGBTQQIA+ People National Action Plan: Ending Violence Against Indigenous Women, Girls, and 2SLGBTQQIA+ People June 3, 2021 Note to Reader The National Action Plan honours, and is inclusive of, all Indigenous women, girls, and Two Spirit, Lesbian, Gay, Bisexual, Transgender, Queer, Questioning, Intersex, and Asexual Plus (2SLGBTQQIA+) people. We are unique and distinct in our identities, ancestries, histories, and traditions and we acknowledge the importance of recognizing these differences. The Final Report of the National Inquiry into Missing and Murdered Indigenous Women and Girls (MMIWG) relied on shared understandings of specific terms and definitions related to missing and murdered Indigenous women, girls and 2SLGBTQQIA+ people. These terms and their definitions are also used in the National Action Plan, both for consistency and to respect the collective efforts by all parties involved in the National Inquiry.1 Indigenous Inuit The Final Report stated that “In the context of Inuit live in every province and territory in the National Inquiry, the term ‘Indigenous’ can be Canada and are an international Indigenous understood as a collective noun for First Nations, circumpolar people. Most Inuit in Canada Inuit, and Métis people in Canada…Throughout live in Inuit Nunangat – the land, water, the report, we use the term ‘Indigenous’ to and ice that make up the Inuit homeland. identify experiences that may be held in common This homeland is made up of four regions: by First Nations, Métis and Inuit...” (MMIWG Inuvialuit, in the western Arctic; the territory Final Report, p. 59). of Nunavut; Nunavik, in northern Quebec; and Nunatsiavut, in northern Labrador. First Nations First Nations are part of unique larger Métis Nation linguistic and cultural groups that vary The Métis Nation emerged as a distinct across the country. First Nations have a Indigenous people in the historic Northwest unique and special relationship with the during the late 18th century. The historic Crown and the people of Canada as set Métis Nation Motherland encompasses the out in the Royal Proclamation of 1763 and Prairie Provinces of Manitoba, Saskatchewan Manifested in Treaties, the Constitution Acts and Alberta and extends into contiguous parts of 1867 and 1982, Canadian common law of Ontario, British Columbia, the Northwest and International law in accordance with Territories and the northern United States. the United Nations Declaration of the Rights of In 1870 the Métis Provisional Government Indigenous People. of Louis Riel negotiated the entry of the Red River Settlement into Confederation as the Province of Manitoba.2 3 The Métis Nation defines “Métis” as a person Urban Realities who self-identifies as Métis, is distinct Identity is complex and Urban Indigenous from other Aboriginal peoples, is of historic communities honour, respect and celebrate Métis Nation Ancestry and who is accepted this complexity. One may identify as First by the Métis Nation.”3 People of the Métis Nations, Inuit or Métis, but some may feel Nation are represented by democratically that they do not fit into these categories elected governing members in each of the and may more readily identify with the term five provinces. Indigenous, which is inclusive of complex identities. However, we also recognize that Distinctions-Based some are not comfortable being identified as The Final Report notes the “very challenging Indigenous. Therefore, we use and understand task of engaging in a legal inquiry process, while the terms Indigenous and First Nations, Inuit incorporating distinctive First Nations, Inuit, and Métis to always mean “regardless of and Métis cultures, languages, spirituality, and residency,” “regardless of relationship to the creating opportunities for healing.” (MMIWG Crown,” and inclusive of the full complexity of Final Report, p. 3). It also acknowledges the our identities. “challenges facing specific groups, institutions, geographical, or other circumstances, within a The Urban Sub Working Group defines urban distinctions-based approach.” (MMIWG Final as: First Nation, Inuit and Métis people living Report, p. 83). In addition, the Final Report in small, medium and large communities, recognizes that there are “distinctive bases of including rural, isolated and remote discrimination, depending on which Indigenous communities, which are: off-reserve; outside Nation or group’s experience is in play. In other of their home community, community of origin words, Inuit, Métis, and First Nations women do or settlement; or outside of Inuit Nunangat not always face the same kind of discrimination (Inuit Homelands). or threat, even though all are Indigenous.” (MMIWG Final Report, p. 104). Off Reserve Status and Non- status Indigenous Peoples Off reserve status and non-status Indigenous peoples are amongst the most socially and economically disadvantaged groups in Canadian society, an unfortunate reality deeply rooted in colonialism and its impacts. As the Final Report noted during the National Inquiry, it was a struggle to provide culturally safe wellness services to “all those affected by the issue of missing and murdered Indigenous women, girls, and 2SLGBTQQIA people, whether they be Status First Nations, non-Status First Nations, Inuit or Métis” (MMIWG Final Report, p. 70). 4 The Congress of Aboriginal Peoples (CAP) represents 2SLGBTQQIA+ People off-reserve status and non-status Indians, Métis and The “+” at the end of “2SLGBTQQIA+” is a way of Southern Inuit Indigenous Peoples. As identified in the being inclusive, honouring and celebrating how our Final Report, the development and implementation languages are expanding and offering choices for our of a National Action Plan to address violence against sexual and gender diverse relatives to identify. Indigenous women, girls, and 2SLGBTQQIA+ people is a partnership that calls for programs and services that By relying on and employing the above-noted terms “must be no-barrier and must apply regardless of Status or and their definitions. the National Action Plan location” (MMIWG Final Report, p. 176) honours, and is inclusive of, all Indigenous Peoples affected by this ongoing tragedy, including but not Indigenous Women, Girls, and limited to First Nations, Inuit, and Métis women, girls, 2SLGBTQQIA+ People and 2SLGBTQQIA+ people. The Final Report notes that “We have chosen to use the phrase ‘Indigenous women, girls, and 2SLGBTQQIA people,’ both to include non-binary people and people with diverse sexualities, and as an explicit reminder that gender-diverse people’s needs must equally be taken into account.” (MMIWG Final Report, p. 59). 5 Contents Dedication 7 Provinces and Territories 56 Message from the National Family and Newfoundland and Labrador 58 9 Survivors Circle Prince Edward Island 61 11 Message from the Core Working Group Nova Scotia 64 12 Introduction New Brunswick 67 National Inquiry into Missing and Murdered Quebec 70 Indigenous Women and Girls 13 Ontario 73 Developing a Core Working Group 17 Manitoba 76 National Action Plan 21 Saskatchewan 78 Overarching Vision and Guiding Principles 22 Alberta 81 Vision 22 British Columbia 84 Guiding Principles 22 Yukon 87 Goals 25 Northwest Territories 90 National Action Plan Nunavut 93 Common Short-Term Priorities 26 96 National Family and Survivors Circle 31 The Way Forward Immediate Next Steps 97 First Nations 35 Monitoring Progress 99 Inuit 38 105 Métis Nation 40 Next Steps 106 2SLGBTQQIA+ 44 Conclusion 107 Urban 47 Appendix A: Acronyms 108 Congress of Aboriginal Peoples 50 Appendix B: Key Terms 110 Federal Government 53 Endnotes 6 Dedication We honour our grandmothers, mothers, daughters, sisters, aunties, cousins, friends, and Two Spirit, Lesbian, Gay, Bisexual, Transgender, Queer, Questioning, Intersex, and Asexual Plus (2SLGBTQQIA+) people who have gone missing or have been murdered, as well as the survivors of gender- and race-based violence and the families whose lives have been altered forever. Our work is guided by your voices – we will always remember. We pay tribute to the strength and resilience of We commend the National Family and Survivors families of missing and murdered Indigenous women, Circle, which continues to advise based on the four girls and 2SLGBTQQIA+ people, and survivors of pillars of inclusion, interconnectedness, accountability, gender- and race-based violence, who shared their and impact, so that outcomes are felt on the ground. difficult truths about this long-standing crisis through The National Family and Survivors Circle continues the National Inquiry into Missing and Murdered to lead and advocate for the inclusion of family and Indigenous Women and Girls, the Métis Perspectives survivors in actions focused on ending all forms of Missing and Murdered Indigenous Women, Girls and of violence against Indigenous women, girls, and LGBTQ2S+ People report, and other processes. We also 2SLGBTQQIA+ people. The lived expertise and acknowledge, respect and honour family members agency of families, survivors, and 2SLGBTQQIA+ and survivors who were not ready or who chose not to people are critical in the decolonizing approach for participate in the inquiries. transformative change. We acknowledge the work of those involved in the We thank the numerous front-line workers, grassroots National Inquiry, including the Commissioners, staff, organizations, and advocacy groups for their tireless Elders, Grandmothers, Committee members, project support to survivors and family members. coordinator,
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