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Canada's Empty Promise UNIVERSITY OF LJUBLJANA European Master’s Programme in Human Rights and Democratisation A.Y. 2019/2020 CANADA’S EMPTY PROMISE A Critical Examination of Canada’s Feminist International Assistance Policy in Relation to the Missing and Murdered Indigenous Women and Girls in Canada Author: Carly Anne Sikina Supervisor: Katja Žvan Elliott 2 ABSTRACT In 2017, Global Affairs Canada (GAC) passed the country’s latest foreign policy entitled, Canada’s Feminist International Assistance Policy (CFIAP). Individuals have praised this policy, claiming it as a “game changer in international development” (Marwah, “Canada’s New”, para. 12). However, some feminist scholars criticize the policy, arguing it “acts as a feminist fig leaf for major initiatives in other foreign policy areas (especially defense) that are not feminist” and therefore, lacks a foundational feminist framework (Brown and Swiss, “CFIAP: Game Changer or Fig Leaf”, 129). It is crucial to ask whether this new feminist foreign policy is ultimately feminist, and question the actors who define that feminism. Throughout this analysis, it is argued that Canada is failing to ensure adequate protections of vulnerable groups, both nationally and internationally. I conduct an examination of CFIAP to uncover whether the policy aligns with feminist reasoning and question if it is reflective of the situation within Canada’s national borders. There is particular focus on indigenous women and girls, following the cases of the missing and murdered indigenous women and girls in Canada (MMIWG). This is done using a critical feminist lens, informed by intersectionality, feminist research ethics (FRE) and anti- colonial epistemology. Keywords: Canada’s Feminist International Assistance Policy, Foreign Policy, Feminism, Intersectionality, Canada, Missing and Murdered Indigenous Women. 3 ACKNOWLEDGEMENTS When I was brainstorming ideas for my master’s thesis, my mom told me to write about something that makes me mad; so angry that I pour my heart and soul into this project. So that’s what I did – Thank you mom. This thesis is dedicated to the missing and murdered indigenous women and girls in Canada – May you rest in power. Canada has failed you and I am devoted to bringing light to the grave pockets of injustice that exist as a result of the nation’s colonial legacy. This analysis is also dedicated to every person who has ever felt invisible or whose experiences have been invalidated by those in power. I see you. As a person of extreme privilege, this is my commitment to do better and decolonize myself while hopefully, inspiring others to do the same. This year has been challenging – From Acqua Alta to COVID-19 – But it has also been wonderful because of the amazing people I met and the relationships I solidified. Despite many obstacles, I will always look back on this year with gratitude. To my family, thank you for your unconditional support and for encouraging me to follow my dreams. To my best friend Emma, you are my rock and I am forever grateful for our friendship. Thank you for helping me navigate this challenging time; you are an inspiration to me and all those around you. To my EMA family, thank you for inspiring me every day. Thank you Nina and Mariana for keeping me grounded; I could not have done this without your love and support. And thank you Ioanna for reminding me who I am and for your endless encouragement during the first semester. To my friends in Ljubljana, you became my family and thank you for bringing so much joy into my life. Although it was not the experience we anticipated, it ended up being incredible because of you. To Katja, thank you for being a great source of inspiration and knowledge. I could not have asked for a better thesis supervisor. Thank you for your support and for believing in me even when I didn’t believe in myself. Thank you for trusting my abilities and constantly reminding me of my 4 strength and intelligence. This thesis is a partnership and I could not have done this without your guidance. 5 TABLE OF ABBREVIATIONS CCRF Canadian Charter of Rights and Freedoms CEDAW Convention on the Elimination of Discrimination Against Women CERD Convention on the Elimination of All Forms of Racial Discrimination CDA Critical Discourse Analysis CFIAP Canada’s Feminist International Assistance Policy CRC Convention on the Rights of the Child FNMI First Nations, Métis and Inuit FP Foreign Policy FPA Foreign Policy Analysis FRE Feminist Research Ethics GAC Global Affairs Canada GBV Gender-Based Violence GDP Gross Domestic Product GM Gender Mainstreaming GOC Government of Canada MMIWG Missing and Murdered Indigenous Women and Girls NATO North Atlantic Treaty Organization NWAC Native Women’s Association Canada RCMP Royal Canadian Mounted Police SDGs Sustainable Development Goals SWC Status of Women Canada TRC Truth and Reconciliation Commission of Canada UN United Nations UNDRIP United Nations Declaration on the Rights of Indigenous Peoples WPS Women, Peace and Security 6 TABLE OF CONTENTS CHAPTER ONE – INTRODUCTION TO FEMINIST THEORIZING AND KEY THEMES 9 1. INTRODUCTION.…………………………………………………………………………………...9 1.1 DEFINING FEMINISM.……………………………………………………………………………13 1.2 DEFINING FOREIGN POLICY.…………………………………………………………………….16 1.3 CONSTRUCTING FEMINIST FOREIGN POLICY.………………………………………………….. 18 2. PARAMETERS OF RESEARCH.…………………………………………………………………….21 2.1 CANADIAN FEMINIST POLICY ON THE GLOBAL SCALE.………………………………………..22 2.2 CASE STUDY – MMIWG IN CANADA.…………………………………………………………...22 2.3 CONSTRAINING OPPORTUNITIES.……………………………………………………………….23 3. FEMINIST RESEARCH ETHICS.…………………………………………………………………...24 3.1 ATTENTIVENESS TO POWER…………………………………………………………………….25 3.2 BOUNDARIES AND SILENCES....………………………………………………………………....26 3.3 RELATIONSHIPS…………………………………………………………………………………26 3.4 SITUATEDNESS………………………………………………………………………………….27 CHAPTER TWO – CANADA’S FEMINIST INTERNATIONAL ASSISTANCE POLICY 28 1. OVERVIEW………………………………………………………………………………………..28 2. DISCOURSE ANALYSIS……………………………………………………………………………31 2.1 DISCOURSE ANALYSIS AS A RESEARCH METHOD……………………………………………...31 2.2 DISCOURSE AND CFIAP…………………………………………………………………………33 3. FIVE THEMES PRESENT IN CFIAP………………………………………………………………35 3.1 CANADIAN VALUES…………………………………………………………………………….35 3.2 GENDER AND CULTURAL ESSENTIALISM………………………………………………………38 3.3 NEOLIBERAL IDEOLOGIES AND PATERNALISM…………………………………………………42 3.4 THE IDEAL VICTIM……………………………………………………………………………...46 3.5 MAINTENANCE OF EXISTING STRUCTURAL INEQUALITIES…………………………………….49 4. STRENGTHS AND LIMITATIONS OF CFIAP……………………………………………………...50 4.1 STRENGTHS…………………………………………………………………………………….50 4.2 LIMITATIONS……………………………………………………………………………………51 CHAPTER THREE – MISSING AND MURDERED INDIGENOUS WOMEN AND GIRLS 54 1. DEFINING INDIGENOUS PEOPLES IN THE CANADIAN CONTEXT……………………………….54 7 2. CANADA’S LEGACY OF COLONIALISM………………………………………………………….55 3. INDIGENOUS WOMEN AND INTERSECTIONAL DISCRIMINATION………………………………58 4. MISSING AND MURDERED INDIGENOUS WOMEN AND GIRLS………………………………….60 4.1 OVERVIEW…………………………………………………………………………………….60 4.2 THE SEARCH FOR MMIWG……………………………………………………………………..62 4.3 MEDIA AND PUBLIC RESPONSE………………………………………………………………...64 5. FRAMING MMIWG IN DOMESTIC AND INTERNATIONAL LEGAL TERMS………………………65 5.1 INTERNATIONAL LEGAL FRAMEWORK………………………………………………………...66 5.2 NATIONAL LEGAL FRAMEWORK………………………………………………………………70 6. CONNECTING THE LOCAL AND THE GLOBAL: CFIAP AND MMIWG…………………………..73 6.1 REVISITING CANADIAN VALUES………………………………………………………………74 6.2 COLONIAL LEGACY: OBSTRUCTING CANADA’S PROMISE…………………………………….77 6.3 FRAMING THE ‘IDEAL VICTIM’………………………………………………………………...79 6.4 MAINTENANCE OF EXISTING STRUCTURES……………………………………………………80 CHAPTER FOUR – MOVING FORWARD: WHERE DO WE GO FROM HERE? 83 1. THE IMPORTANCE OF INTERSECTIONALITY……………………………………………………84 2. DECOLONIZATION OF POLICIES………………………………………………………………...86 3. CONCLUSIONS AND CONTRIBUTIONS……………….…………………………………………..88 3.1 CONTRIBUTIONS TO THE FIELD………………………………………………………………..89 3.2 OPPORTUNITIES FOR FUTURE RESEARCH……………………………………………………..90 APPENDIX 91 BIBLIOGRAPHY 92 8 “Feminist politics aims to end domination, to free us to be who we are – To live lives where we love justice, where we can live in peace. Feminism is for everybody.” – bell hooks 9 CHAPTER ONE: Introduction to Feminist Theorizing and Key Themes 1. Introduction National identity rhetoric has immense power and Canada’s international reputation as a “do-gooder” nation directly impacts Canadian identity.1 This sense of Canadian national identity is magnified when entering the global sphere. Despite Canada’s overwhelmingly positive international repute, it is important to consider the nation’s legacy of colonialism, gender inequality, xenophobia and racism, which are commonly ignored in global settings. As a result, the experiences of those in marginalized positions are oftentimes rendered invisible in international contexts. As Canada was one of the first countries to both sign and ratify the Convention on the Elimination of Discrimination Against Women (CEDAW)2 and participated in the First World Conference on Women,3 the country gained a reputation for advancing gender equality across the globe. Moreover, Canada is oftentimes referred to as a “gender-conscious donor country,”4 alongside the Nordic countries, Germany, Switzerland, and the Netherlands. During the Mid-Decade World Conference of the UN Decade of Women,5 Canadian delegates contributed to the development of several draft resolutions, including “Women and discrimination based on race,”6 which shows promise of intersectional feminism prior to the development of the
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