Canada

STOLEN SISTERS
Discrimination and Violence Against Indigenous Women
in Canada
A Summary of Amnesty Internationals Concerns
[<span class="navigator" align="center">The full version of this report can be viewed on the AI Canada website in
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One amily! T"ree Decades! T#o $urders
-elen 8ett" 9sborne was a &(:"ear:old Cree student fro! northern .anitoba who drea!ed of beco!ing a teacher 9n
;ove!ber &0< &(=&< she was abducted b" four white !en in the town of The 4as and then se>uall" assaulted and
brutall" ,illed A provincial in?uir" subse?uentl" concluded that Canadian authorities had failed -elen 8ett" 9sborne
The in?uir" critici@ed the slopp" and raciall" biased police investigation that too, !ore than &) "ears to bring one of
the four !en to Austice .ost disturbingl"< the in?uir" concluded that police had long been aware of white !en
se>uall" pre"ing on Indigenous wo!en and girls in The 4as but "did not feel that the practice necessitated an"
particular vigilance"B&C
Three decades later< on .arch 0)< 0112< 6elicia Dolo!on< a &E:"ear:old cousin of -elen 8ett" 9sborne< failed to return
ho!e fro! school in Finnipeg< .anitoba 6eliciaGs fa!il" sa"s the Finnipeg police did not treat the case seriousl"
when the" first reported 6elicia !issing A Finnipeg police spo,esperson told A!nest" International that the force
responds to !issing persons reports based on an assess!ent of the li,el" ris, to the !issing person and does not
have a polic" of waiting 3' hours for the person to turn up< as !an" in the public believe -owever< the fa!il" sa"s
that the officers who too, the report said the" could not ta,e action until another 3' hours had passed The first
posters see,ing infor!ation on 6elicia Dolo!onGs disappearance were distributed b" the fa!il"< not the police A
fa!il" !e!ber co!!ents: "Fhen so!ething happens to so!eone elseGs child< whether the" are white or fro! an"
other ,ind of race or culture< the police do ever"thing ItGs co!pletel" different when an Indian person goes !issing"
In Hune 0112< bod" parts were found that were later identified as 6elicia Dolo!onGs -er ,iller has not been found

The !urders of -elen 8ett" 9sborne and 6elicia Dolo!on are two of the cases highlighted in a new report b" A!nest"
International I Stolen Sisters: A human rights response to discrimination and violence against Indigenous women in
Canada.(2) These stories of !issing and !urdered IndigenousB2C wo!en and girls ta,e place in three Festern
provinces of Canada over a period of three decades The perpetrators< where ,nown< include both inti!ate
ac?uaintances and strangers In so!e cases< the cri!es re!ain unsolved In ever" instance< Canadian authorities
could and should have done !ore to ensure the safet" of these wo!en and girls or to address the social and
econo!ic factors that had helped put the! in har!Gs wa"
T"e Sco%e of t"e Violence
A shoc,ing &((E Canadian govern!ent statistic reveals that Indigenous wo!en between the ages of 0) and 33< with
status under the Indian Act< were five ti!es !ore li,el" than all other wo!en of the sa!e age to die as the result of
violenceB3C Jnderstanding the true scale and nature of violence against Indigenous wo!en< however< is greatl"
ha!pered b" a persistent lac, of co!prehensive reporting and statistical anal"sis
*eports of !urders< assaults or !issing persons !a" be investigated b" !unicipal police forces< provincial forces or
the national police force< the *o"al Canadian .ounted 4olice B*C.4C 4olice have said that the" do not necessaril"
record the ethnicit" of cri!e victi!s or !issing persons when entering infor!ation into the Canadian 4olice
Infor!ation Centre database< the principle !echanis! for sharing infor!ation a!ong police forces in CanadaB)C
According to the Canadian Centre for Hustice Dtatistics< in && percent of ho!icides in 0111< Canadian police did not
record or report on whether or not the victi! was an Indigenous personBEC
Indigenous wo!enGs organi@ations have long spo,en out against what so!e describe as an epide!ic of violence
against wo!en and children within Indigenous co!!unitiesB=C .ore recentl"< a nu!ber of advocac" organi@ations<
including the ;ative Fo!enGs Association of Canada B;FACC< have drawn attention to acts of violence perpetrated
&age ' of '(
against Indigenous wo!en in predo!inantl" non:Indigenous co!!unities A nu!ber of high profile cases of
assaulted< !issing or !urdered Indigenous wo!en and girls have also helped focus greater public attention I in so!e
instances< ver" belatedl" I on violence against Indigenous wo!en in specific cities 6or e>a!ple:
K A Aoint *C.4/Lancouver Cit" 4olice Tas,force is investigating the disappearance of E1 wo!en and one
transgender person fro! Lancouver< 8ritish Colu!bia over the last decade Di>teen of the !issing wo!en are
Indigenous< a nu!ber far in e>cess of the proportion of Indigenous wo!en living in Lancouver A 8ritish Colu!bia
!an< *obert 4ic,ton< is currentl" awaiting trial for 00 !urder charges related to this investigation 4olice and cit"
officials had long denied that there was an" pattern to the disappearances or that the wo!en were in an" particular
danger
K In two separate instances in &((3< &):"ear:old Indigenous girls< *o>anna Thiara and Alishia Mer!aine< were
found !urdered in 4rince Meorge in eastern 8ritish Colu!bia The bod" of a third &):"ear:old Indigenous girl< *a!ona
Filson< who disappeared that sa!e "ear< was found in D!ithers in central 8ritish Colu!bia in April &(() 9nl" in
0110< after the disappearance of a 0E:"ear:old non:Indigenous wo!an< ;icola -oar< while hitchhi,ing along a road
that connects 4rince Meorge and D!ithers< did !edia attention focus on the unsolved !urders and other
disappearances along what has been dubbed "the highwa" of tears"
K In &((E< Hohn .artin Crawford was convicted of !urder in the ,illings of three Indigenous wo!en< Nva Ta"sup<
Dhelle" ;apope< and Calinda Faterhen< in Das,atoon< Das,atchewan Farren Moulding< one of the few Aournalists to
cover the trial< has co!!ented: "I donOt get the sense the general public cares !uch about !issing or !urdered
aboriginal wo!en ItOs all part of this indifference to the lives of aboriginal people The" donOt see! to !atter as !uch
as white people"B'C
K In .a" 0113< a for!er 8ritish Colu!bia 4rovincial Court Audge< 5avid Fillia! *a!se"< pleaded guilt" to
bu"ing se> fro! and assaulting four Indigenous girls< aged &0< &3< &) and &E< who had appeared before hi! in court
The cri!es were co!!itted between &((0 and 011& In Hune< the for!er Audge was sentenced to seven "ears in
prison
K In Nd!onton< Alberta< police are investigating &' unsolved !urders of wo!en in the last two decades
Fo!enGs organi@ations in the cit" esti!ate that a disproportionate nu!ber of the wo!en were Indigenous
;FAC believes that the incidents that have co!e to light are onl" part of the picture The organi@ation has esti!ated
that over the past twent" "ears !ore than five hundred Indigenous wo!en !a" have been !urdered or gone !issing
in circu!stances suggesting violence
Miven the significant gaps in available infor!ation< it is not possible to co!!ent on the accurac" of this esti!ate
Jntil police consistentl" record whether or not !issing persons and the victi!s of violent assaults are Indigenous< and
these statistics are subAect to co!prehensive anal"sis< it will not be possible to accuratel" esti!ate the true scale or
the circu!stances of violence against Indigenous wo!en in Canada Pet< no !atter what the e>act toll of !urdered
and !issing wo!en has been< their fate has not been ade?uatel" addressed b" Canadian authorities 6aced with
apparent indifference to the welfare and safet" of Indigenous wo!en< the fa!ilies and non:govern!ental
organi@ations wor,ing on their behalf have been obliged to launch their own ca!paigns to bring the issue before the
police< !edia and govern!ent officials
A!nest" InternationalGs own research was not co!prehensive The stories told in A!nest" InternationalGs report have
been chosen because the" reflect the range of concerns and circu!stances brought to the organi@ationGs attention
A!nest" InternationalGs research focused on a li!ited nu!ber of cities in western Canada where there is a large and
growing Indigenous population and where there has alread" been so!e public attention to these concernsB(C .an"
regions of the countr"< such as the north of Canada< could not be included in this research 6urther!ore< the report
onl" includes case studies in which the fa!ilies of these wo!en and girls were willing and prepared to have these
stories told publicl"
-owever< the stories told in the report< along with valuable input fro! a range of front:line organi@ations< wor, done
b" authoritative govern!ent co!!issions such as the .anitoba Hustice In?uir"< and other infor!ation reviewed in the
course of research< all point to an urgent need for Canadian officials to better understand and address violence
against Indigenous wo!en in predo!inantl" non:Indigenous co!!unities It is A!nest" InternationalGs view that the
role of discri!ination in fuelling this violence< in den"ing Indigenous wo!en the protection the" deserve or in allowing
the perpetrators to escape Austice is a critical part of the threat faced b" Indigenous wo!en
Indigenous Women at Ris)
The .anitoba Hustice In?uir" said of the ,illing of -elen 8ett" 9sborne:
There is one funda!ental fact: her !urder was a racist and se>ist act 8ett" 9sborne would be alive toda"
&age * of '(
had she not been an Aboriginal wo!anB&1C
Those words describe an act of horrific violence carried out b" four !en !ore than thirt" "ears ago Dadl"< A!nest"
InternationalGs research underscores the fact that three decades later the lives of Indigenous wo!en in Canada
continue to be placed at ris, precisel" because the" are Indigenous wo!en That research< along with the testi!on"
of frontline organi@ations and the conclusions of previous govern!ent co!!issions and in?uiries< points to the
following factors lin,ing racis! and discri!ination to violence against Indigenous wo!en in urban centers in Canada:
K 5espite assurances to the contrar"< police in Canada have often failed to provide Indigenous wo!en with an
ade?uate standard of protection
K The social and econo!ic !arginalisation of Indigenous wo!en< along with a histor" of govern!ent policies
that have torn apart Indigenous fa!ilies and co!!unities< have pushed a disproportionate nu!ber of Indigenous
wo!en into dangerous situations that include e>tre!e povert"< ho!elessness and prostitution
K The resulting vulnerabilit" of Indigenous wo!en has been e>ploited b" Indigenous and non:Indigenous !en to
carr" out acts of e>tre!e brutalit" against Indigenous wo!en
K These acts of violence !a" be !otivated b" racis!< or !a" be carried out in the e>pectation that societal
indifference to the welfare and safet" of Indigenous wo!en will allow the perpetrators to escape Austice
Indigenous wo!enGs lives re!ain at ris, in part because of the failure of Canadian officials to i!ple!ent critical
!easures needed to reduce the !arginalisation of Indigenous wo!en in Canadian societ" and build better relations
between Indigenous peoples and the Austice s"ste! These are !easures that have been repeatedl" called for b"
co!!issions and in?uiries such as the .anitoba Hustice In?uir" and the *o"al Co!!ission on Aboriginal 4eoples< and
b" Jnited ;ations hu!an rights bodiesB&&C The failure to respond ?uic,l" and appropriatel" to threats to Indigenous
wo!enGs lives !eans that Canadian officials have failed to live up to their responsibilit" to prevent violations of
Indigenous wo!enGs funda!ental hu!an rightsB&0C
A Legacy of +istory
Liolence against wo!en and children within Indigenous fa!ilies and co!!unities is widel" understood to be part of a
broader spectru! of social stress and tur!oil that has resulted fro! govern!ent policies i!posed on Indigenous
peoples without their consentB&2C
6or !ore than a centur"< fro! the &'=1s through the !id:&('1s< the Canadian govern!ent too, awa" Indigenous
wo!enGs status as Indigenous people under the federal Indian Act< along with their right to live in their ho!e
co!!unities< if the" !arried a non:Indigenous !an or a !an fro! another co!!unit" This polic" resulted in the
uprooting of tens of thousands of Indigenous wo!en< Aeopardi@ing their ties to their fa!ilies and increasing their
dependence on their spouses
5uring roughl" the sa!e period< the govern!ent re?uired Indigenous children to be educated in off:reserve
residential schools where< in addition to being punished for spea,ing their language or practicing their cultures< !an"
were subAected to inhu!an living conditions and ph"sical and se>ual abuse B&3C
Nven as the residential school s"ste! was being phased out through the &(E1s< Indigenous children continued to be
ta,en fro! their fa!ilies b" child service progra!s oriented toward putting children in the care of the state rather
than addressing the circu!stances of povert" and fa!il" violence that placed the children at ris, : a proble! that
persists toda"B&)C
All the while< the land and resource base essential to the viabilit" of Indigenous econo!ies and wa"s of living has
been dra!aticall" eroded b" the failure of govern!ents to consistentl" recogni@e and uphold Indigenous titleB&EC
The legac" of these policies has been the erosion of culture< the uprooting of generations of Indigenous wo!en< the
separation of children fro! their parents< and a c"cle of i!poverish!ent< despair and bro,en self:estee! that
continues to grip !an" Indigenous fa!ilies The federal govern!entGs *o"al Co!!ission on Aboriginal 4eoples B*CA4C
concluded in &((E:
*epeated assaults on the culture and collective identit" of Aboriginal people have wea,ened the foundations
of Aboriginal societ" and contributed to the alienation that drives so!e to self:destruction and anti:social
behaviour Docial proble!s a!ong Aboriginal people are< in large !easure< a legac" of histor"B&=C
A!nest" InternationalGs research suggests that the sa!e legac" of histor" has also contributed to a heightened ris, of
violence for Indigenous wo!en in urban centers in Canada Menerations of Indigenous wo!en and girls have been
&age , of '(
dispossessed b" govern!ent policies .an" now face desperate circu!stances in Canadian towns and cities< a
situation co!pounded b" se>ist stereot"pes and racist attitudes toward Indigenous wo!en and girls and general
indifference to their welfare and safet" The result has been far too !an" Indigenous wo!en and girls placed in
har!Gs wa"< denied ade?uate protection of the law< and !arginali@ed in a wa" that allows so!e !en to get awa" with
carr"ing out violent cri!es against the!
Dis%ossessed in T"eir O#n Lands
Docial strife< decades of involuntar" uprooting of wo!en and children< and lac, of econo!ic and educational
opportunities within !an" Indigenous co!!unities have contributed to a stead" growth in the nu!ber of Indigenous
people living in predo!inantl" non:Indigenous towns and cities
9n average< however< Indigenous wo!en in Canadian urban centers are unable to earn enough !one" to !eet their
own needs< !uch less support a fa!il" In the &((E census< the average annual inco!e of Indigenous wo!en with
status living off:reserve was Q)<)11 less than that of non:Indigenous wo!enB&'C and substantiall" less than the
a!ount Dtatistics Canada esti!ated people living in a large Canadian cit" would have needed to provide food< shelter
and clothing for the!selvesB&(C -o!elessness and inade?uate shelter are believed to be widespread proble!s
facing Indigenous fa!ilies in all settingsB01C
The difficult struggle to get b" is co!pounded b" se>ist stereot"pes and racist attitudes toward Indigenous wo!en
and girls and general indifference to their welfare and safet" As described in &((2 b" the Canadian 4anel on Liolence
against Fo!en: "R!ost Aboriginal people have ,nown racis! first:hand I !ost have been called Sdirt" IndiansG in
schools or foster ho!es or b" police and prison guards Aboriginal people have also e>perienced subtle shifts in
treat!ent and ,now it is no accident"B0&C
In one surve"< Indigenous fa!ilies struggling with povert" described their situation using words and phrases such as
"low self:estee!< depression< anger< self:doubt< inti!idation< frustration< sha!e and hopelessness"B00C
4rostitution is one !eans which so!e Indigenous wo!en have resorted to in the
struggle to provide for the!selves and their fa!ilies in Canadian citiesB02C In a stud" of &'2 wo!en in the Lancouver
se> trade carried out b" the 4ACN B4rostitution Alternatives Counselling and NducationC Dociet"< roughl" 31 percent of
the wo!en said the" got into the se> trade because the" needed the !one"B03C and 0) percent referred to drug
addiction as part of the reason the" started selling se>ual services Al!ost E1 percent said the" continued wor,ing in
the se> trade to !aintain a drug habitB0)C In the 4ACN stud"< !ore than 21 percent of se> wor,ers surve"ed were
Indigenous wo!en< although Indigenous people !a,e up less than two percent of the cit"Gs populationB0EC
Indigenous wo!en are believed to be si!ilarl" over:represented a!ong se> wor,ers in other Canadian cities
Another non:govern!ental organi@ation< Dave the Children Canada< spo,e with !ore than &)1 Indigenous "ouths and
children being e>ploited in the se> trade Al!ost all the "outh and children interviewed tal,ed about "the
overwhel!ing presence of disruption and discord in their lives< acco!panied b" low self:estee!"B0=C 9ther factors
co!!on to !an" of the "oung peoplesG lives included a histor" of ph"sical or se>ual abuse< a histor" of running awa"
fro! fa!ilies or foster ho!es< lac, of strong ties to fa!il" and co!!unit"< ho!elessness or transience< lac, of
opportunities< and povert" The report notes:
An" trau!a that detaches children fro! their fa!ilies< co!!unities and cultures increases the li,elihood of
involve!ent in co!!ercial se>ual e>ploitation 9nce a child or "outh loses such basic para!eters as safet"<
shelter and sustenance< their vulnerabilit" forces the! into situations whereb" the se> trade can beco!e the
onl" viable alternative for survivalB0'C
Violence Against Women in t"e Se- Trade
Fhether or not prostitution is a cri!inal act< wo!en in the se> trade are entitled to the protection of their hu!an
rights Concrete and effective !easures !ust be adopted to ensure their safet" and to bring to Austice those who
co!!it or profit fro! violence against se> trade wor,ers
For,ing in the se> trade in Canada can be e>tre!el" dangerous for wo!en< whether Indigenous or non:Indigenous
This is especiall" true for wo!en who solicit on the streets In the 4ACN stud"< one:third of the wo!en said the" had
survived an attac, on their life while wor,ing on the streetB0(C
Fo!en in the se> trade are at heightened ris, of violence because the" are often desperate enough to ta,e ris,s such
as getting into cars with !en ,nown to be violent and because the social stig!ati@ation of wo!en in the se> trade
provides a convenient rationale for !en loo,ing for targets for acts of !isog"nistic violenceB21C 6urther!ore< the
threat of arrest !a,es !an" wo!en reluctant to report attac,s to the police or cooperate with police investigations
As a result< the perpetrators !a" be encouraged b" the belief that the" are li,el" to get awa" with their cri!es
&age . of '(
The isolation and social !arginali@ation that increases the ris, of violence faced b" wo!en in the se> trade is often
particularl" acute for Indigenous wo!en The role of racis! and se>is! in co!pounding the threat to Indigenous
wo!en in the se> trade was star,l" noted b" Hustice 5avid Fright in the &((E trial of Hohn .artin Crawford for the
!urder of three Indigenous wo!en in Das,atchewan:
It see!s .r Crawford was attracted to his victi!s for four reasonsT one< the" were "oungT second< the" were
wo!enT third< the" were nativeT and fourth< the" were prostitutes The" were persons separated fro! the
co!!unit" and their fa!ilies The accused treated the! with conte!pt< brutalit"T he terrori@ed the! and
ulti!atel" he ,illed the! -e see!ed deter!ined to destro" ever" vestige of their hu!anit"B2&C
Racist Violence and Indigenous Women
A!ong the !issing and !urdered Indigenous wo!en whose stories appear in A!nest" InternationalGs report< so!e
had occasionall" or regularl" engaged in the se> trade to !a,e a living 9thers< however< had had no connection to
the se> trade It is A!nest" InternationalGs view that so!e of the factors contributing to violence against se> wor,ers<
such as social stig!atisation and being cut off fro! the protection of fa!il" and societ"< are often part of the
e>perience of Indigenous wo!en be"ond the se> trade
The .anitoba Hustice In?uir" said of the !urder of -elen 8ett" 9sborne:
-er attac,ers see!ed to be operating on the assu!ption that Aboriginal wo!en were pro!iscuous and open
to entice!ent through alcohol or violence It is evident that the !en who abducted 9sborne believed that
"oung Aboriginal wo!en were obAects with no hu!an value be"ond se>ual gratificationB20C
6rontline organi@ations contacted b" A!nest" International confir!ed that racist and se>ist attitudes toward
Indigenous wo!en continue to be a factor in attac,s on Indigenous wo!en in Canadian cities 4olice< however< are
inconsistent in their ac,nowledge!ent of this threat Do!e police spo,espersons told A!nest" International that the"
believe that "lifest"le" factors< such as engaging the se> trade or illegal drug use are the !ost i!portant ris, factors<
and that other factors such as race or gender are not significant enough to be considered in their wor, 9ther police
spo,espersons told A!nest" International that the" have seen that racis! and se>is! are factors in attac,s on
Indigenous wo!en and that the" consider Indigenous wo!en as a whole to be at ris,
O/er &oliced and 0nder &rotected
;u!erous studies of policing in Canada have concluded that Indigenous people as a whole are not getting the
protection the" deserveB22C This conclusion is supported b" the testi!on" of !an" of the fa!ilies interviewed b"
A!nest" International A few described police officers who were polite and efficient and who< in a few cases< even
went to e>traordinar" lengths to investigate the disappearance of their loved ones 9ther fa!ilies described how
police failed to act pro!ptl" when their sisters or daughters went !issing< treated the fa!il" disrespectfull"< or ,ept
the fa!il" in the dar, about how the investigation I if an" I was proceeding
A nu!ber of police officers interviewed b" A!nest" International insisted that the" handle all cases the sa!e and do
not treat an"one differentl" because the" are Indigenous -owever< if police are to provide Indigenous people with a
standard of protection e?uivalent to that provided to other sectors of societ"< police need to understand the specific
needs of Indigenous co!!unities< be able to co!!unicate with Indigenous people without barriers of fear and
!istrust< and ulti!atel" be accountable to Indigenous co!!unities As so!e police officers ac,nowledged to
A!nest" International< this is clearl" not the case toda"
Across the countr"< Indigenous people face arrest and cri!inal prosecution in nu!bers far out of proportion to the si@e
of the Indigenous population The .anitoba Hustice In?uir" suggested that the overrepresentation of Indigenous
people in the Austice s"ste! !a" partl" ste! fro! the predisposition of police to charge and detain Indigenous people
in circu!stances "when a white person in the sa!e circu!stances !ight not be arrested at all< or !ight not be
held"B23C The In?uir" e>plained that !an" police have co!e to view Indigenous people not as a co!!unit"
deserving protection< but a co!!unit" fro! which the rest of societ" !ust be protected This has lead to a situation
often described as one of Indigenous people being over:policed but under:protectedB2)C
.an" Indigenous people feel the" have little reason to trust police and as a conse?uence< are reluctant to turn to
police for protection 4olice forces were used to enforce policies such as the re!oval of children to residential schools
that have torn apart Indigenous co!!unities Toda"< !an" Indigenous people believe police are as li,el" to har! as
to protect the! The Das,atchewan Hustice *efor! Co!!ission noted that "!others of Aboriginal "outh have spo,en
about the apprehension the" feel when their children leave the ho!e at night Their fears involve the possibilit" of
police abusing their children"B2EC 9ne Indigenous wo!an< herself a professor at a Canadian universit"< told A!nest"
International that she has instructed her teenage son to never tal, to the police unless she is present
&age 1 of '(
4rotesting against the absence of an" per!anent police force in !an" ;orthern co!!unities< the Inuit Fo!enGs
Association of Canada has said< "In order to serve all parts of the co!!unities< the police have to ,now our
co!!unities< the" !ust be a part of our co!!unities"B2=C .an" police forces in Canada now re?uire officers to ta,e
courses in cultural sensitivit"< cross cultural co!!unication or Indigenous histor" to help i!prove their understanding
of Indigenous co!!unities 5espite such re?uire!ents< the Das,atchewan Hustice *efor! Co!!ission concluded<
"police officers continue to be assigned to 6irst ;ations and .Utis co!!unities with !ini!al ,nowledge of the culture
and histor" of the people the" serve"B2'C
5espite the efforts of !an" police forces to hire !ore Indigenous officers< Indigenous people are still
underrepresented in police forces across CanadaB2(C Mreater effort !ust be !ade to hire !ore Indigenous officers<
especiall" wo!en
.ore attention !ust also be !ade to integrate an understanding of Indigenous co!!unities into core learning
e>periences of all officers 6or e>a!ple< the concerns< perspectives and needs of Indigenous co!!unities should be
reflected in the operational scenarios used in police training 9fficers also need the ti!e and the opportunit" within
their da":to:da" duties to develop the necessar" relationships of !utual understanding and trust with Indigenous
co!!unities Jnfortunatel"< !an" officers told A!nest" International that heav" wor,loads and fre?uent< often
!andator"< rotations in and out of assign!ents< present real barriers to officers understanding and being trusted b"
Indigenous co!!unities
4olice forces should wor, with Indigenous organi@ations to establish practices and policies that can support not onl"
the learning of individual officers< but also an i!proved relationship between Indigenous co!!unities and the force
as a whole The Das,atchewan Hustice *efor! Co!!ission pointed to a nu!ber of positive practices within the
Das,atoon police force that should be e!ulated elsewhere These included the creation of an Indigenous liaison post
and regular cooperation with co!!unit" elders< including having elders acco!pan" officers on so!e patrols in
predo!inantl" Indigenous neighbourhoodsB31C
9ne of the critical areas for institutional refor! highlighted b" A!nest" InternationalGs research is the wa" police
respond to reports of !issing persons .an" Indigenous fa!ilies told A!nest" International that police did little when
the" reported a sister or daughter !issing and see!ed to be waiting for the wo!an to be found 4olice point out that
the vast !aAorit" of people who are reported !issing have run awa" or chosen to brea, off ties with fa!il" or friends
.ost people who have voluntaril" "gone !issing" in this wa" do ?uic,l" turn up on their own
-owever< this does not e>cuse incidents recounted to A!nest" International where< despite the serious concern of
fa!il" !e!bers that a !issing sister or daughter was in serious danger< police failed to ta,e basic steps such as
pro!ptl" interviewing fa!il" and friends or appealing to the public for infor!ation These steps are particularl" urgent
when the !issing person is a girl< as the state has special obligations to find and protect children at ris, Nver"
!issing person report needs to be carefull" assessed to deter!ine the ris, to the !issing person Jnfortunatel"< even
in large cities< !an" Canadian police forces do not have speciali@ed personnel assigned to !issing person cases
Instead< the tas, of assessing the ris, and the credibilit" of the fa!il"Gs fears !a" fall to individual officers with little
or no specific training or e>perience related to !issing persons
To A!nest" InternationalGs ,nowledge< few police forces have specific protocols on actions to be ta,en when
Indigenous wo!en and girls are reported !issing The national police force< the *C.4< does re?uire that a speciali@ed
liaison officer be involved in the case when the !issing person is Indigenous All forces should wor, with Indigenous
co!!unities to develop and put in place !ore specific protocols that are sensitive to the particular concerns and
circu!stances in which Indigenous wo!en are reported !issing
There are additional concerns around police treat!ent of Indigenous and non:Indigenous wo!en in the se> trade
Jnder Canadian law< the act of prostitution is not illegal< but co!!unicating in public for the purpose of bu"ing or
selling se>ual services< as well as bu"ing or atte!pting to bu" the se>ual services of so!eone "ounger than &'< being
found in a place !aintained for prostitution< and procuring or living off the proceeds of so!eone elseGs prostitution
are all cri!inal actsB3&C Although these laws potentiall" target those who purchase se> or live off of prostitution as
!uch as the" target wo!en and !en who sell se>ual services< prostitutes are the !ost fre?uent targets of arrest in
!an" Aurisdictions .an" in the se> trade sa" that the threat of enforce!ent of these laws is used to drive se> trade
wor,ers fro! neighbourhoods where affluent residents are li,el" to co!plain< into less visible< and therefore !ore
dangerous areasB30C
The threat of arrest places se> wor,ers in an "adversarial relationship" with policeB32C De> wor,ers are reluctant to
see, the protection of police for fear of being arrested In turn< police tend to loo, on prostitutes with suspicion and
!istrust< and !a" bla!e the! for putting the!selves in positions of ris,The e>ecutive director of *eginaGs De>
For,ersG Advocac" 4roAect< 8arb /awrence< told A!nest" International about co!!ents !ade b" one police officer A
se> wor,er !issed an appoint!ent with a Crown 4rosecutor to give testi!on" in the case of a !urdered Indigenous
wo!an in *egina /awrence< who had set up the !eeting< eventuall" received a call fro! the se> wor,er It turned out
&age 2 of '(
that the wo!an was being held b" cit" police who wanted her to provide evidence on a separate case The police had
refused to believe that she had a !eeting with the prosecutorGs office Fhen /awrence and the prosecutors went to
the police station to !eet the wo!an< the arresting officer reportedl" said he had no reason to believe the wo!anGs
clai!s< sa"ing "sheGs Aust a hoo,er on the street"
Conclusion and Recommendations
Indigenous wo!en and girls deserve the protection of Canadian authorities and Canadian societ" The failure to
provide that protection is a personal traged" for their fa!ilies who have lost sisters< daughters and !others to racist
and se>ist violence It is also a hu!an rights traged"
The concept of hu!an rights is based on the recognition of the inherent dignit" and worth of ever" hu!an being I
without e>ception Through ratification of binding international hu!an rights treaties and the adoption of i!portant
declarations b" bodies such as the Jnited ;ations< govern!ents have !ade a co!!it!ent to ensure that all people
enAo" universal rights and freedo!s Movern!ents are obliged to provide protection fro! discri!ination and ensure
that ever"one has access to ade?uate healthcare< education< and shelter Movern!ents are also obliged to ta,e ever"
reasonable precaution to prevent cri!es such as !urder< abduction and torture
A!nest" International is concerned that Canadian officials are not living up to their obligations toward Indigenous
wo!en Attac,s on Indigenous wo!en in Canadian cities have< for too long< been treated as isolated incidents The
co!!on patterns are not ade?uatel" researched and !an" of the preventive !easures identified b" past govern!ent
co!!issions and in?uiries have not been i!ple!ented .eanwhile longstanding patterns of social and econo!ic
ine?uit" that re!ain unaddressed continue to drive Indigenous wo!en and girls into situations li,e the se> trade
where the ris, to their lives is that !uch greater
It is ti!e for action
All levels of govern!ent in Canada should wor, closel" and urgentl" with Indigenous peoplesG organi@ations< and
Indigenous wo!en in particular< to institute plans of action to stop violence against Indigenous wo!en The following
reco!!endations for action are based on reco!!endations !ade b" the fa!ilies of !issing wo!en< frontline
organi@ations wor,ing for Indigenous wo!enGs welfare and safet"< and official govern!ent in?uiries and co!!issions
Do!e of the reco!!endations are specific to the situation and needs of Indigenous wo!en 9thers are relevant to
both Indigenous wo!en and non:Indigenous wo!en
Canadian officials should:
& Identif" and i!ple!ent appropriate and effective protocols for action on !issing person cases consistent with
the specific ris,s to Indigenous wo!en and girls
0 4rovide ade?uate< sustained< !ulti:"ear funding to culturall" appropriate services< such as shelters and
counselling for Indigenous wo!en and girls< needed to prevent violence against Indigenous wo!en The design and
i!ple!entation of these progra!s !ust be responsive to the needs of Indigenous wo!en
2 N>pand progra!s which provide advocates to assist Indigenous people in their contacts with police and with
courts
3 Nnsure that all police forces in Canada are subAect to the Aurisdiction of independent civilian bodies able to
investigate allegations of wrongdoing b" police
) Increase recruit!ent of Indigenous police officers< particularl" Indigenous wo!en As well< ensure ade?uate
training for all police< prosecutors and Audges on issues of violence against Indigenous wo!en in a range of settings
including fa!il" violence< child se>ual e>ploitation and violence against wo!en in the se> trade
E As part of ongoing review and i!ple!entation of laws regarding the se> trade in Canada< give police clear
instructions to ensure that the funda!ental rights of wo!en involved in the se> trade are protected in the course of
all law enforce!ent activities
= 4rovide funding for co!prehensive national research on violence against Indigenous wo!en< including the
creation of a national registr" to collect and anal"@e statistical infor!ation fro! all Aurisdictions
' *e?uest the Jnited ;ationsG Dpecial *apporteur on the situation of hu!an rights and funda!ental freedo!s
of indigenous people and Dpecial *apporteur on violence against wo!en< its causes and conse?uences< to Aointl"
stud" and docu!ent patterns of violence against Indigenous wo!en< including in Canada Clearl" outline the
!easures ta,en to address the proble! of violence against Indigenous wo!en in Canada in reports to relevant J;
hu!an rights bodies< including the Co!!ittee on the Nli!ination of 5iscri!ination against Fo!en< the Co!!ittee on
&age 3 of '(
the Nli!ination of *acial 5iscri!ination and the -u!an *ights Co!!ittee
( I!ple!ent outstanding reco!!endations of the *o"al Co!!ission on Aboriginal 4eoples which address
povert" and social !arginali@ation of Indigenous people in Canada< as has repeatedl" been urged b" Jnited ;ations
hu!an rights treat" bodies
&1 Dtrengthen and e>pand public education progra!s< including those within the for!al school s"ste!< that
ac,nowledge and address the histor" of dispossession and !arginali@ation of Indigenous peoples and the present
realit" of racis! in Canadian societ"
&& Ta,e !easures to ensure !andator" and !eaningful consultation with Indigenous wo!en in the for!ulation
and i!ple!entation of all policies affecting their welfare
&0 *atif" and uphold international hu!an rights instru!ents relevant to the prevention of violence against
wo!en< including the Inter:A!erican Convention on the 4revention< 4unish!ent and Nradication of Liolence against
Fo!en BConvention of 8elU! do 4arVC
6or further reco!!endations< please see our full report: Stolen Sisters: A Human Rights Response to Discrimination
and iolence Against Indigenous !omen in Canada.
Ta)e action
Add "our voice to the de!and that Canadian officials ta,e urgent action to stop violence against Indigenous wo!en in
Canada
Frite to:
The -onourable Anne .c/ellan
5eput" 4ri!e .inister and .inister of 4ublic Dafet" and N!ergenc" 4reparedness
-ouse of Co!!ons
4arlia!ent 8uildings
9ttawa< 9ntario
W&A 1AE
Canada
1 N>press "our deep concern about violence against Indigenous wo!en in Canada As, the federal govern!ent to
ta,e the following steps as a !atter of urgent priorit":
K Dtrongl" encourage all police forces across Canada to wor, with Indigenous wo!enGs organi@ations to identif"
and i!ple!ent appropriate and effective protocols for action on !issing person cases consistent with the specific
ris,s to Indigenous wo!en and girls
K Nnsure ade?uate< sustained< !ulti:"ear funding to culturall" appropriate services such as shelters and
counselling< needed to prevent violence against Indigenous wo!en
K 4rovide ade?uate funding for co!prehensive national research on violence against Indigenous wo!en<
including the creation of a national registr" to collect and anal"@e statistical infor!ation fro! all Aurisdictions
K Nnsure full i!ple!entation of outstanding reco!!endations of the *o"al Co!!ission on Aboriginal 4eoples<
which address povert" and social !arginali@ation of Indigenous people in Canada< as has repeatedl" been urged b"
Jnited ;ations treat" bodies
44444444
B&C *eport of the Aboriginal Hustice In?uir" of .anitoba: The 5eaths of -elen 8ett" 9sborne and Hohn Hoseph -arper<
Co!!issioners AC -a!ilton and C. Dinclair< &((&
B0C The cases are included in the full version of this report
B2C The ter! "Indigenous" refers to all descendants of the original inhabitants of the territories that now !a,e up
Canada This includes the 6irst ;ations< the Inuit and the .Utis In Canada< the word "Aboriginal" has the sa!e
!eaning and is !ore widel" used This report uses the ter! "Indigenous" because of its use in international hu!an
rights laws and standards
&age 5 of '(
B3C Aboriginal Fo!en: A 5e!ographic< Docial and Ncono!ic 4rofile< Indian and ;orthern Affairs Canada< Du!!er
&((E
B)C Canadian 4ress< ".issing aboriginal wo!en inspire national ca!paign<" 00 .arch 0113
BEC Huristat Lol 0&< ;o(< Canadian Centre for Hustice Dtatistics< Dtatistics Canada 011&
B=C Dee< for e>a!ple< Claudine 5u!ont:D!ith and 4auline Dioui /abelle< ;ational 6a!il" Liolence Abuse Dtud"
Aboriginal ;urses of Canada< &((& 4au,tuutit BInuit Fo!enOs AssociationC ;o !ore secrets &((&
B'C "Derial ,iller who roa!ed Das,atoon !et with indifference b" police< !edia: Hournalist:author accepts award for
boo, about slain aboriginal wo!en" Nd!onton Hournal 0( ;ove!ber 0112
B(C Lancouver< 4rince Albert< Das,atoon< *egina< and Finnipeg
B&1C *eport of the Aboriginal Hustice In?uir" of .anitoba< Dupra< footnote &
B&&C Dee< for instance< *eport of the *o"al Co!!ission on Aboriginal 4eoples B*CA4C< &((E< http://wwwainc:
inacgcca/ch/rcap/sg/sg!!#eht!lT and the Concluding observations of the Jnited ;ations Co!!ittee on Ncono!ic<
Docial and Cultural *ights: Canada< &1/&0/('< N/C&0/&/Add2&
B&0C CanadaGs obligations to protect Indigenous wo!en fro! violence ste! fro! a nu!ber of international hu!an
rights treaties including the Convention on the Nli!ination of 5iscri!ination against Fo!en< article 0T the
International Covenant on Civil and 4olitical *ights< article 0T and the International Convention on the Nli!ination of all
for!s of *acial 5iscri!ination< article 0
B&2C Dee< for e>a!ple< The Aboriginal 6a!il" -ealing Jnit Dteering Co!!ittee< 6or Menerations to Co!e: The Ti!e is
;ow: A Dtrateg" for Aboriginal 6a!il" -ealing BD"lvia .aracle< 8arbara Craig< co:chairsC< &((2
B&3C *CA4< Dupra< footnote &&
B&)C 5epart!ent of Indian Affairs and ;orthern 5evelop!ent and Asse!bl" of 6irst ;ations 6irst ;ations Child and
6a!il" Dervices Hoint ;ational 4olic" *eview 9ttawa< 0111 Cind" 8lac,stoc,< Darah Clar,e< Ha!es Cullen< Heffre"
5G-ondt< and Hocel"n 6or!s!a Weeping the 4ro!ise: The Convention on the *ights of the Child and the /ived
N>periences of 6irst ;ations Children and Pouth 6irst ;ations Child and 6a!il" Caring Dociet" of Canada 9ttawa
0113
B&EC *CA4< Dupra< footnote &&
B&=C *CA4 Ibid
B&'C Indian and ;orthern Affairs Canada Aboriginal Fo!en: A 4rofile fro! the &((E Census< 9ttawa< 011&
B&(C Dtatistics Canada /ow inco!e cut offs fro! &((3:0112 and low inco!e !easures fro! &((0:011&< 9ttawa<
0112
B01C .ar" Ann 8eavis< ;anc" Wlos< To! Carter and Christian 5ouchant /iterature *eview: Aboriginal 4eoples and
-o!elessness Institute of Jrban Dtudies< The Jniversit" of Finnipeg Hanuar" &((=
B0&C 6ree!an .arshall< 4at and .arthe Asselin Laillancourt Changing the /andscape: Nnding Liolence IAchieving
N?ualit": 6inal *eport of the Canadian 4anel on Liolence Against Fo!en< 9ttawa:
Duppl" and Dervices Canada< &((2
B00C 9ntario 6ederation of Indian 6riendship Centres< Jrban Aboriginal Child 4overt": A Dtatus *eport on Aboriginal
Children % Their 6a!ilies in 9ntario< Toronto< 9ntario< 9ctober< 0111
B02C A variet" of factors lead wo!en to wor, in the se> trade That full range of circu!stances is not the focus of this
report< which concentrates on Indigenous wo!en in Canada
B03C 4ACN Dociet"< Liolence against Fo!en in LancouverGs Dtreet /evel De> Trade and the 4olice *esponse<
Lancouver< 0111< p '0
B0)C Ibid pp 20:2
&age 6 of '(
B0EC Ibid p E
B0=C Dave the Children Canada Dacred lives: Canadian Aboriginal children and "outh spea, out about se>ual
e>ploitation ;ational Aboriginal Consultation 4roAect 9ttawa< 0111 p 22
B0'C Ibid< p 23
B0(C 4ACN Dociet"< Dupra< footnote 03< p E
B21C Hohn /ow!an "Liolence and the 9utlaw Dtatus of BDtreetC 4rostitution in Canada Liolence Against Fo!en<
Lolu!e E< ;u!ber (< Depte!ber 0111< pp ('=:&1&&< at ('(
B2&C Farren Moulding Hust Another Indian: A Derial Willer and CanadaGs Indifference< Calgar": -eritage -ouse
4ublishing Co!pan" 011& p &''
B20C *eport of the Aboriginal Hustice In?uir" of .anitoba< Dupra< footnote &
B22C Dee for e>a!ple: Das,atchewan Co!!ission on 6irst ;ations and .Utis 4eoples and Hustice *efor!
BDas,atchewan Hustice *efor! Co!!issionC< 6inal *eport< *egina< 0113 *eport of the Aboriginal Hustice In?uir" of
.anitoba< Dupra< footnote &
B23C Aboriginal Hustice In?uir" of .anitoba< Dupra< footnote &< p )()
B2)C The Aboriginal Hustice I!ple!entation Co!!ission< 6inal *eport< .anitoba< 011&
B2EC Das,atchewan Hustice *efor! Co!!ission< Dupra< footnote 22< pp ):2< ):3
B2=C 4au,tuutit BInuit Fo!enGs Association of CanadaC< Inuit Fo!en and Hustice: 4rogress *eport ;o &< Appendi><
Liolence Against Fo!en and Children: The Concerns of /abrador Fo!en pp):E
B2'C Das,atchewan Hustice *efor! Co!!ission< Dupra< footnote 22< pp ):'
B2(C Ibid< pp ):&1< ):&& The Aboriginal Hustice I!ple!entation Co!!ission Dupra< footnote 23
B31C Ibid< p A:23
B3&C Cri!inal Code of Canada< ss 0&0< 0&2
B30C 4ivot /egal Dociet" Loices for 5ignit": A Call to Nnd the -ar!s Caused b" CanadaGs De> Trade /aws Lancouver<
0113
B32C /ow!an< Dupra< footnote 21< p &11'
&age '( of '(