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Canadian Group of the Inter-Parliamentary Union

Report

OVERVIEW

A delegation from the Canadian Group of the Inter-Parliamentary Union (IPU) attended the 280th session of the Executive Committee of the IPU, the 139th IPU Assembly and related meetings in Geneva (Switzerland) from 12 to 18 October 2018. The Canadian delegation was comprised of the following members:

  • Honourable David McGuinty, P.C., M.P., President of the Canadian Group of the IPU and head of the delegation
  • Honourable Salma Ataullahjan, Senator, Vice-President of the Canadian Group of the IPU
  • Honourable Dennis Dawson, Senator
  • Mr. Sven Spengemann, M.P.
  • Honourable Michelle Rempel, P.C., M.P.
  • Ms. Pam Damoff, M.P.
  • Mr. Murray Rankin, M.P.
  • Mr. Jamie Schmale, M.P.

Meetings of the IPU provide an important opportunity for Canadian parliamentary diplomacy. Multilateral work occurs through the meetings of various committees and other bodies that take place during an IPU assembly. Bilateral work occurs through side meetings that arise during IPU assemblies.

Throughout the 139th Assembly, members of the Canadian delegation engaged in exchanges with their counterparts and participated in various debates in an attempt to promote Canadian values in relation to important topics of international concern, including migration, sustainable development, international peace and security, gender equality and human rights.


THE IPU: BACKGROUND

Established in 1889, the IPU is the international organization of parliaments of sovereign states. The IPU is the focal point for global parliamentary dialogue, working for peace and co-operation as well as for the firm establishment of representative democracy. To this end, it:

  • Fosters contacts, co-ordination, and the exchange of experiences among parliamentarians of all member parliaments;
  • Considers questions of international interest and concern, and expresses its views on relevant issues in order to bring about action by parliaments and parliamentarians;
  • Contributes to the defence and promotion of human rights, which are essential aspects of parliamentary democracy and development; and
  • Contributes to better knowledge of the working of representative institutions, and to the strengthening and development of their means of action[1].

At present, the IPU’s activities are pursued according to its Strategy 2017–2021: Strong democratic parliaments, serving the people adopted in October 2016 during the 135th Assembly[2].

At the close of the 139th Assembly, 178 national parliaments were members of the IPU and 12 regional parliamentary assemblies were associate members.


THE 139TH IPU ASSEMBLY

A.The 139th Assembly Agenda [3]

The IPU Assembly is the principal statutory body that expresses the views of the IPU on political issues. Two Statutory Assemblies are held each year, bringing together parliamentarians from around the world to study international issues and make recommendations for action.

The agenda for the 139th Assembly included the following items:

  • Election of the President and Vice-Presidents of the 139th Assembly;
  • Consideration of requests for the inclusion of an emergency item in the Assembly agenda;
  • General debate on Parliamentary leadership in promoting peace and development in the age of innovation and technological change;
  • Resolution on Strengthening inter-parliamentary cooperation on migration and migration governance in view of the adoption of the Global Compact for Safe, Orderly and Regular Migration (Standing Committee on Democracy and Human Rights);
  • Reports of the Standing Committees on Peace and International Security; Sustainable Development, Finance and Trade; and United Nations Affairs;
  • Approval of the subject item to be considered by the Standing Committees Democracy and Human Rights at the 141st IPU Assembly and appointment of the Rapporteurs;
  • Debate of an emergency item on Climate Change – Let us not cross the line;
  • Amendments to the IPU Statutes and Rules
  • Unfinished business from the 138th Assembly [4]

Overall, delegations from 145-member parliaments participated in the activities of the 139th Assembly. Of the 1,545 participants in attendance, 737 were members of national parliaments; including 54 Presiding Officers and 50 Deputy Presiding Officers. A total of 233 women parliamentarians (33% of all parliamentarians participating) attended the 139th Assembly, as did 138 young parliamentarians (under the age of 45)[5].

B. The General Debate

During the 139th Assembly, a general debate was held on the topic of Parliamentary leadership in promoting peace and development in the age of innovation and technological change. The debate was opened by the Director General of the European Organization for Nuclear Research, CERN. The Assembly also heard from Mr. Henk Rogers, Founder and CEO of the Blue Planet Foundation (Hawaii). In total, 126 delegates from 107 member Parliaments, and 9 partner organizations took the floor during the debate, which was held over three days. For the first time, the General Debate featured a segment reserved for young parliamentarians[6]. All members of the Canadian delegation attended at least one of the sessions.

As head of the delegation and on behalf of the Canadian IPU Group, David McGuinty, M.P. delivered a speech during the General Debate. In his remarks, Mr. McGuinty highlighted that the outcome of technological change and innovation was not inevitable, and that the choices made by parliamentarians, among others, can have an important influence on how innovations will affect society. Mr. McGuinty went on to discuss how Canada has enacted policies that seek to harness the potential of innovation through collaboration with the private sector, while at the same time ensuring the new risks created by technological change are properly mitigated.

C. The Emergency Item

The IPU Statutes provide that an IPU assembly may include one emergency item in its agenda[7]. The IPU Rules further provide that: “Should several requests obtain the requisite majority, the one having received the largest number of positive votes shall be accepted.”[8] The 139th Assembly received five requests for the inclusion of an emergency item on its agenda. Two of those original proposals were subsequently withdrawn. The three remaining items included one on restoring peace and security in the Sahel, one on the cutting off of aid to United Nations Relief and Works Agency for Palestine Refugees (UNRWA) and one on the consequences of climate change. Following a roll-call vote, the proposed emergency item entitled Climate change-Let us not cross the line put forward jointly by Fiji, Micronesia, Samoa, Seychelles and Tonga was added to the 139th Assembly’s agenda.[9] The Canadian delegation had the right to cast 15 votes for each proposed emergency item, and cast them as follows:

  • Cutting Off Aid to UNRWA – 15 votes against
  • Restoring Peace in the Sahel – 5 votes for, 10 abstentions
  • Climate Change – 10 votes for, 5 abstentions

On 18 October 2018, the Assembly adopted the resulting resolution by consensus.

D. Unfinished Business of the 138th Assembly

During the closing session of the 138th Assembly in March 2018, objections were raised by certain members regarding the Standing Committee on Democracy and Human Rights’ planned panel discussion on ending discrimination based on sexual orientation. Similar objections were raised during the 137th Assembly, which resulted in the matter being referred back to that committee. During the 138th Assembly, David McGuinty, M.P., addressed the Assembly, stating the committee should be allowed to continue its work and asking for a procedural decision on whether the Assembly had the authority to alter the committee’s approved agenda, while also raising the issue of quorum.

On the opening day of the 139th Assembly, 15 October, the Assembly held a roll-call vote on the following question: Do you agree that the Assembly can change the work plan and agenda of the Standing Committees? 874 votes were cast in the affirmative; 671 votes were cast in the negative; there were 120 abstentions. The Canadian delegation cast 15 “no” votes. Pursuant to the Assembly’s decision that it had the power to change the work plan of a standing committee, the Assembly voted on whether the Standing Committee on Democracy and Human Rights should be allowed to hold a panel debate entitled The role of parliaments in ending discrimination based on sexual orientation and gender identity, and ensuring respect for the human rights of LGBTI persons at the 140th Assembly. As its proponent, the Belgian delegation spoke in favour of allowing the debate; the Ugandan delegation spoke against allowing the debate. In the end, the Assembly voted against allowing the LGBTI panel debate to be held. 499 votes were cast in the affirmative; 636 votes were cast in the negative; 130 abstentions were registered. 45 delegations were absent and did not vote. The Canadian delegation cast 15 votes in favour of allowing the debate to proceed.

E. IPU Standing Committees

Each IPU assembly is assisted in its work by standing committees. Each delegation is represented on standing committees by one member and one substitute member[10]. At the 129th Assembly in October 2013, the Governing Council adopted significant amendments to the rules of the standing committees: in addition to the topic of a draft resolution, a committee’s work plan can now include other activities, such as hearings, reports and missions.

1. Standing Committee on Peace and International Security

The Standing Committee on Peace and International Security met on 15 and 17 October 2018. On 15 October, the Standing Committee held a panel on Comprehensive disarmament and non-proliferation, followed by a panel on Combatting sexual violence in UN Peacekeeping operations and beyond, in which Pam Damoff, M.P. was a member of the panel. In her remarks, Ms. Damoff called for states to adopt a zero-tolerance approach to sexual violence in UN peacekeeping missions and highlighted Canada’s Elsie Initiative for Women in Peace Operations[11].

On 17 October, the Standing Committee held an expert hearing on Non-admissibility of using mercenaries as a means of undermining peace and violating human rights. The topic, proposed by Ukraine at the 138th Assembly, will be the subject of a draft resolution prepared by Co-rapporteurs Ukraine and Jordan. The draft resolution is expected to be debated by the 140th IPU Assembly[12].Jamie Schmale, M.P. attended the expert hearing.

2. Standing Committee on Sustainable Development, Finance and Trade

The Standing Committee on Sustainable Development, Finance and Trade met on 15 and 17 October 2018. The Committee held a debate on The role of fair and free trade and investment in achieving the SDGs, especially regarding economic equality, sustainable infrastructure, industrialization and innovation. This will be the topic of a resolution that is expected to be debated at the 140th IPU Assembly. The co-Rapporteurs for this resolution are Mr. J. Wilson (Australia), Mr. H. Iddrisu (Ghana) and Ms. S. Raskovic Ivic (Serbia)[13]. The Standing Committee also discussed the draft outcome document for the Parliamentary Meeting at the United Nations Climate Change Conference that is to take place on 9 December 2018 in Krakow, Poland. In light of debate during the committee meeting, the draft outcome document will be revised by the Rapporteur, Ms. A. Paluch (Poland)[14]. Jamie Schmale, M. P. attended these debates.

The Standing Committee also held a panel discussion on the implementation of a resolution approved at the 138th Assembly, entitled Engaging the private sector in implementing the SDGs, especially on renewable energy.[15]

3. Standing Committee on Democracy and Human Rights

The Standing Committee on Democracy and Human Rights held sessions on 15, 16 and 17 October 2018.

The Standing Committee finalized a draft resolution prepared by the Co-rapporteurs Mr. J.I. Echániz (Spain), Ms. K. Sosa (El Salvador) and Mr. A Touizi (Morocco), entitled Strengthening inter-parliamentary cooperation on migration and migration governance in view of the adoption of the Global Compact for Safe, Orderly and Regular Migration. The topic was the subject of a preparatory debate at the 138th IPU Assembly. The Standing Committee considered 97 amendments to the resolution submitted by 17 parliamentary delegations[16]. The Canadian delegation submitted five amendments, three of which were incorporated into the resolution. Among the Canadian amendment not accepted was one specifically including reference to members of the LGBTI community as vulnerable migrants. The Canadian delegation also proposed a sub-amendment during the debate, which was adopted. Pam Damoff, M.P, Sven Spengemann, M.P. and Murray Rankin, M.P. presented and explained amendments put forward by the Canadian delegation. In her capacity as Rapporteur, Senator Ataullahjan presented amendments proposed by the Forum of Women Parliamentarians. The revised draft resolution was adopted by consensus at the final sitting of the Committee. The draft resolution was presented by Mr. J.I. Echániz (Spain) to the Assembly at its plenary sitting in the afternoon of 18 October and was adopted by consensus, with six delegation registering reservations.

Sven Spengemann, M.P. participated in the meeting of the Bureau of the Standing Committee on 16 October. The Bureau considered proposals for the future work of the Committee. Following a recommendation by the Bureau, the Standing Committee decided unanimously to endorse the proposal entitled Achieving universal health coverage by 2030: The role of parliaments in ensuring the right to health, as the subject of its next resolution. A preparatory debate will take place at the 140th Assembly and the resolution will be finalized at the 141st Assembly in October 2019. The Standing Committee also approved the Bureau’s recommendation to hold a panel discussion at the 140th Assembly to examine implementation of three past resolutions: the 2009 resolution on freedom of expression, the 2013 resolution on social media, and the 2015 resolution on privacy in the digital era. These debates would not lead to a resolution.[17]

4. Standing Committee on United Nations Affairs

The Standing Committee on United Nations Affairs held one sitting, on 17 October 2018. The meeting consisted of two panel discussions. The first panel addressed the question of Would a UN intergovernmental tax body help resolve the outstanding issues of corporate tax evasion?. The second panel discussion considered What scope for cooperation between parliaments and the WHO as the leading United Nations agency for global health?[18]

Senator Dawson and Murray Rankin, M.P. attended the Standing Committee session.

F. Amendments to the IPU Statutes and Rules

During 139th Assembly, Members approved amendments to the IPU Statutes and Rules. The amendments were proposed by the Executive Committee following an extensive consultation process. The five amendments approved deal with the IPU’s legal personality, members who are in arrears in the payment of their contribution, the composition of the Governing Council and the development of the IPU’s five-year strategic plan[19]. Amendments proposed by Belgium and the Twelve Plus Group were withdrawn prior to being voted by the Assembly.


PARTICIPATION BY CANADIAN DELEGATES IN RELATED MEETINGS AND ACTIVITIES

A. IPU Governing Institutions

1. Governing Council [20]

The Governing Council is the plenary policy-making body of the IPU[21]. Moreover, several committees fall under the Governing Council’s responsibility and report to it on their work[22]. The Council is composed of three representatives from each IPU member parliament, provided that its representation includes both men and women parliamentarians[23].

Meetings of the 203rd Session of the Governing Council were held on 15 and 18 October 2018. All Canadian delegates attended at least one of these meetings.

The Governing Council had a number of items on its agenda, including the following:[24]

  • Adoption of the agenda
  • Approval of the summary records of the 202nd session of the Governing Council Proposals for the election of the President of the 139th Assembly
  • Proposals for the election of the President of the 139th Assembly
  • Financial situation of the IPU and the draft programme and budget for 2019Financial situation of the IPU and the draft programme and budget for 2019
  • Report of the President
  • Annual report of the Secretary General on the activities of the IPU since March 2018
  • Questions relating to IPU membership and the situation of certain parliaments
  • Activities of committees and other bodies
  • 140th IPU Assembly (April 2019)
  • Future Inter-Parliamentary meetings
  • Amendments to the IPU Statutes and Rules
  • Elections to the Executive Committee

The Governing Council considered a report on the financial situation of the IPU as of 30 June 2018. The income and expenditure of the IPU was close to target for the first half of the year and projected to remain on target. Concern was raised regarding arrears in the payment of assessed contributions by member parliaments. As of 14 October 2018, four members and one associate member had arrears of two full years.[25]

2. Executive Committee

The Executive Committee advises the Governing Council on matters relating to affiliation and reaffiliation to the IPU, fixes the date and place of Governing Council sessions and establishes their provisional agenda. It also proposes to the Governing Council the annual work program and budget of the IPU. Furthermore, the Executive Committee controls the administration of the Secretariat as well its activities in the execution of the decisions taken by the Assembly and the Governing Council[26].

The IPU Executive Committee held its 280th session on 12, 13 and 17 October 2018[27]. David McGuinty, M.P., who was elected to the Executive Committee at the 137th Assembly, was an active participant in all the Executive Committee’s in camera meetings[28].

The Executive Committee considered proposals made by the IPU President, Ms. G. Cuevas Barron (Mexico), who was elected to a three-year term at the 137th Assembly. The President presented her vision for the IPU along with priorities for 2018 and 2019. The Executive Committee considered the financial situation of the IPU, a programme and draft budget for 2019, and matters related to the functioning of the Secretariat. The Executive Committee also discussed past and future specialized meetings as well as potential hosts for future IPU statutory assemblies.

The Executive Committee engaged in debate regarding the terms of reference and composition of the IPU’s High-Level Advisory Group on Countering Terrorism and Violent Extremism. The Executive Committee also examined a legal opinion on the powers of the IPU Assembly in relation to IPU Standing Committees. The Executive Committee debated modalities to enable the IPU Assembly to address whether it had the power to overturn the decision of the Standing Committee on Democracy and Human Rights to hold a panel on the human rights of the LGBTI community.

The IPU Secretariat reported to the Executive Committee on the situation facing certain parliaments, including Burundi, Cambodia, Democratic Republic of the Congo, Eritrea, Guinea-Bissau, Libya, Maldives, Nicaragua, South Sudan, Syrian Arab Republic, Thailand, Turkey, Venezuela (Bolivarian Republic of) and Yemen. The Executive Committee made recommendations to the Governing Council concerning each case.

Mr. McGuinty was elected as the Vice-President of the Executive Committee representing the Twelve Plus Geopolitical Group.

B. The Forum of Women Parliamentarians

In accordance with the IPU Statutes, a meeting of women parliamentarians is held during the assemblies; it reports on its work to the Governing Council. In general, the Forum of Women Parliamentarians aims to:

  • encourage contact among women parliamentarians;
  • foster democracy by promoting partnership between men and women in all fields;
  • promote the participation of women parliamentarians in the work of the IPU and the equitable representation of women at all institutional levels within the IPU; and
  • pre-study certain issues considered by the IPU Assembly and/or the Governing Council[29]

The 28th Forum of Women Parliamentarians took place on 14 October 2018. The Forum’s agenda included:

  • Presentation of reports regarding activities to advance gender equality at the IPU;
  • Consideration of the draft resolution proposed in the Standing Committees on Democracy and Human Rights;
  • A panel discussion on the topic of Gender Equality in Science and Technology.
  • Election of new members to the Bureau of Women Parliamentarians[30]

A total of 151 parliamentarians from 70 countries participated in the Forum.[31]

Senator Ataullahjan, Sven Spengemann, M.P., Pam Damoff, M.P. and Michelle Rempel, M.P., attended the Forum of Women Parliamentarians. During the Forum, participants were divided into two working groups to provide recommendations for the draft resolutions on the 139th Assembly’s agenda. The discussions led to suggested amendments to both the draft resolutions. Senator Ataullahjan chaired a working group discussing the theme “Women on the move: Protection from trafficking and all forms of violence.”

Senator Ataullahjan participated in the Bureau of Women Parliamentarians, of which she is a member, on October 14 and 18. The Bureau considered the items on the agenda for the 28th session of the Forum on Women Parliamentarians and prepared for the 29th session of the Forum of Women Parliamentarians.

C. Committee on Middle East Questions

The Committee on Middle East Questions held two meetings on 14 and 16 October[32]. The Committee’s activities included:

  • An update on the latest developments in the Middle East, followed by an exchange of views among Committee members, in particular from Israel and Palestine;
  • A presentation by the delegation from Yemen, which included representatives from the two parliamentary factions in the country;
  • A presentation by former Minister of Foreign Affairs of Jordan, Mr. Nasser Guba
  • An update on the Science for Peace projects, including the Science for Peace Schools which was planning to hold its first session in November 2018;

Having been elected as President of the Committee at the last Assembly, for a one-year term, Senator Ataullahjan chaired both meetings of the Committee and met with IPU Secretariat staff and Committee members in pursuit of the Committee’s agenda.

D. Panel Discussion on Sexism and Harassment

On 16 October, a panel discussion was held on the topic of “where do parliaments stand in the fight against sexism and harassment?” The discussion was held as part of the launch of a joint regional study by the IPU and Parliamentary Assembly of the Council of Europe entitled Sexism, harassment and violence against women in parliaments in Europe.[33]Michelle Rempel, M.P. was a member of the panel and spoke about the efforts currently underway in the Parliament of Canada to deal with this issue as well as her personal experience as a woman parliamentarian. Ms. Rempel emphasized that more needed to be done and that change was required at the societal level to create an environment conducive to gender equality.

E. Panel Discussion on Parliaments and Science

On 16 October, the IPU in cooperation with the European Organization for Nuclear Research hosted a panel discussion on the topic of “Building bridges between the parliamentary and scientific communities.”[34] Senator Ataullahjan was a member of the panel and spoke about the importance of parliamentarians keeping abreast of recent scientific developments in order to make sound policy decisions. Senator Ataullahjan noted that this was particularly important for women parliamentarians and highlighted efforts by Canada to encourage more women and girls to pursue higher education in scientific fields.

F. Meetings of the Geopolitical Groups

Article 27 of the IPU Statutes permits IPU members to form geopolitical groups; there are six such groups formally recognized by the IPU. The groups play an important role in the functioning and activities of the IPU. Each group determines its own working methods, and informs the IPU Secretariat of its composition, officers and rules of procedure.

Canada belongs to two geopolitical groups:[35]

  • the 47 member Twelve Plus Group, which includes nations from Europe, as well as Australia, New Zealand and Israel; and
  • the 36 member Asia-Pacific Group.

While Canada participates in the activities of both groups, it submits candidatures for vacant positions within the IPU through the Twelve Plus Group.

1. Asia-Pacific Group

A meeting of the Asia-Pacific Group was held on 14 October 2018. Murray Rankin, M.P. and Sven Spengemann, M.P. attended the meeting. Discussions focused primarily on the selection of a new Executive Committee member to represent the group. Delegates from China and Indonesia had submitted their candidacy. Contrary to established custom in the group, a compromise on a consensus candidate could not be reached, in large part because of a disagreement surrounding gender parity requirements for IPU Executive Committee membership. The issue was resolved by way of secret ballot, with the Chinese candidate winning. The vote was held on 15 October, Senator Dawson attended and cast a ballot on behalf of the Canadian delegation.

2. Twelve Plus Group

Meetings of the Twelve Plus Group were held on 13, 15, 16 and 18 October. All Canadian delegates participated in these meetings. Agenda items included the following:

  • proposed changes to the composition and terms of reference of the High-Level Advisory Group on Countering Terrorism and Violent Extremism;
  • two votes to be held regarding the proposed debate on LGBTI discrimination in the Committee on Democracy and Human Rights;
  • elections to fill vacancies;
  • debate of the proposed emergency items;
  • amendments to the IPU Statutes
  • hosting of future IPU Assemblies

Canadian delegates were active participants in the group’s meeting. Sven Spengemann, M.P. and Senator Dawson spoke in favour of the group’s continued advocacy on issues relating to LGBTI discrimination and recommended engaging with like-minded delegations outside of the Twelve Plus Group. David McGuinty, M.P., spoke in favour of the proposed emergency item on the crisis in Venezuela, and the need to continue to push for engagement between the IPU and the United States[36], as well as reporting on discussions held at the IPU Executive Committee.

G. Bilateral Meetings

Members of the Canadian delegation held bilateral meetings with other delegations, including the following countries:

  • China
  • Iran
  • Israel
  • Ukraine
  • Australia, New Zealand and United Kingdom

These exchanges provide a strategic opportunity for the Canadian IPU Group to engage in parliamentary diplomacy, to increase its understanding of other countries and regions, to discuss key bilateral issues and matters pertinent to the international agenda, and to work towards shared multilateral goals, including in the context of the work of the IPU. The matters discussed related to:

  • The possibility of further inter-parliamentary discussions and the establishment of inter-parliamentary friendship groups;
  • Discussion regarding the support for proposed emergency items and other issues related to the Assembly;
  • Matters of Canadian domestic policy, and their applicability as templates for similar legislation in other countries;
  • Opportunities for improving relations between Canada and the other delegation’s country, including increasing trade relations.

The delegation also met with members of the Permanent Mission of Canada in Geneva, including Deputy Permanent Representative, Tamara Mawhinney, and Ambassador and Permanent Representative of Canada to the World Trade Organization (WTO), Stephen de Boer. During the meeting, the delegation received an update on the mission’s activities at the WTO and the UN as well as discussed issues raised during the IPU Assembly relevant to the mission’s work.


DOMESTIC FOLLOW-UP ON ASSEMBLY OUTCOMES

Article 7 of the IPU Statutes requires that members take appropriate domestic action to inform their parliaments and governments of IPU resolutions in order to “stimulate their implementation.”[37] In furtherance of this requirement, and in addition to the presentation of this report in Parliament, correspondence was sent on behalf of the Canadian Group of the IPU to relevant parliamentarians and government officials informing them of the resolutions adopted by the IPU and encouraging them to engage with Canadian Group regarding their domestic implementation. For the 139th Assembly, letters were sent to:

  • The Prime Minister and the Clerk of the Privy Council
  • Ministers and Deputy Ministers of:
    • Environment and Climate Change
    • Foreign Affairs
    • Immigration, Refugees and Citizenship
    • Innovation, Science and Economic Development
    • International Development
    • Natural Resources
  • The Chairs and Vice-Chairs of House of Commons Standing Committees on:
    • Citizenship and Immigration
    • Environment and Sustainable Developments
    • Foreign Affairs and International Development as well as its Subcommittee on International Human Rights
    • Industry, Science and Technology
  • The Chairs and Deputy Chairs of Standing Senate Committees on:
    • Energy, the Environment and Natural Resources
    • Foreign Affairs and International Trade
    • Human Rights
    • Social Affairs, Science and Technology
  • Special Advisor to the Prime Minister on LGBTQ2 Issues
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