OVERVIEW

A delegation from the Canadian Group of the Inter-Parliamentary Union (IPU) attended the 141^st IPU Assembly and related meetings in Belgrade (Serbia) from 11 to 17 October 2019. The delegation was comprised of the following members:

• Honourable Salma Ataullahjan, Senator, Vice-President of the Group and Head of Delegation

• Honourable Dennis Dawson, Senator

• Honourable Mohamed-Iqbal Ravalia, Senator

• Honourable Raymonde Saint-Germain, Senator

The delegation was accompanied by Ms. Céline Ethier, the Executive Secretary of the Canadian Group of the IPU, and its advisor, Mr. Scott McTaggart, from the Library of Parliament.

Meetings of the IPU provide an important opportunity for Canadian parliamentary diplomacy. Multilateral engagement occurs through the meetings of various committees and other IPU bodies, while bilateral engagement occurs through side meetings that arise during IPU assemblies.

Throughout the 141^st Assembly, members of the Canadian delegation engaged with their counterparts and participated in various debates to promote Canadian perspectives and values in relation to important topics of international concern, including democracy, human rights, international peace and security, gender equality, and sustainable development.

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, which was adopted in October 2016 during the 135th Assembly.[2]

At the close of the 141st Assembly, 179 national parliaments were members of the IPU, and 13 regional parliamentary assemblies were associate members.

The 141^st IPU Assembly

A. The 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 141st Assembly included the following items:

• Election of the President and Vice-Presidents of the 141st Assembly;

• Consideration of requests for the inclusion of an emergency item in the Assembly agenda;

• General debate on strengthening international law: parliamentary roles and mechanisms, and the contribution of regional cooperation;

• Resolution on achieving universal health coverage by 2030: the role of parliaments in ensuring the right to health (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 Committee on Democracy and Human Rights at the 143rd IPU Assembly and appointment of the Rapporteurs; and

• Debate of an emergency item on addressing climate change.[4]

Overall, delegations from 149 member parliaments participated in the activities of the 141st Assembly. Of the 1,729 participants in attendance, 739 were members of national parliaments, including 63 Presiding Officers and 57 Deputy Presiding Officers. A total of 227 women parliamentarians (30.7% of all parliamentarians participating) attended the 141st Assembly, as did 129 parliamentarians under the age of 45 (21.5% of all parliamentarians participating).[5]

B. The General Debate

During the 141st Assembly, a general debate was held on the following topic: strengthening international law – parliamentary roles and mechanisms, and the contribution of regional cooperation. Over the course of three days, 144 delegates from 110 member Parliaments, including 52 presiding officers, took the floor during the debate.[6]

On behalf of the Canadian IPU Group, Senator Ataullahjan delivered a speech during the general debate, during which she discussed her efforts to promote respect for international law in Canada. Specifically, Senator Ataullahjan spoke about two bills she sponsored in the Senate of Canada, one of which dealt with private investment in cluster munitions and the other of which addressed illegal trafficking in human organs. Both bills sought to strengthen Canada’s adherence to international legal norms. Senator Ataullahjan emphasized that all parliamentarians have a responsibility to promote respect for international law.[7]

The results of the debate are reflected in an outcome document entitled the “Belgrade Declaration on Strengthening international law: Parliamentary roles and mechanisms, and the contribution of regional cooperation.”[8]

C. The Emergency Item

The IPU Statutes provide that an IPU Assembly may include one emergency item in its agenda.[9] According to the Rules of the Assembly, that body may place an emergency item on its agenda only if two thirds of the votes cast are in support. Furthermore, the rules state: “Should several requests obtain the requisite majority, the one having received the largest number of positive votes shall be accepted.”[10]

The 141^st Assembly considered four requests for the inclusion of an emergency item on its agenda:

• Addressing climate change (India);

• Protection of civilians and international security: Demanding an end to Turkey’s offensive in Syria (France, the United Kingdom, Germany, Switzerland and Egypt);

• Double standards of Western countries in combatting terrorism, especially the conflict in Syria (Turkey);

• Urgent call for the restoration of representative democratic order and for respect for democratic principles in Peru (Peru).

In a roll-call vote, the Canadian delegation had the right to cast 15 votes for each proposed emergency item. It cast 15 votes in favour of the proposal from France, the United Kingdom, Germany, Switzerland and Egypt. It cast 15 votes against each of the other three proposals. Following the vote, the proposal from India was added to the 141st Assembly’s Agenda.[11]

On 16 October 2019, the Assembly adopted the resulting resolution by consensus. The resolution recognizes the global challenge created by climate change and the role of parliaments in addressing that challenge, including at the international level through the Paris Agreement.[12]

D. IPU Standing Committees

The IPU Assembly is assisted in its work by standing committees. Each delegation is represented on standing committees by one member and one substitute member.[13] Committee workplans can include the debate and finalization of a draft resolution, as well 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 16 October 2019. On 15 October, the committee held two discussions, one on the implementation of the committee’s 2014 resolution, Towards a nuclear-weapon-free world: The contribution of parliaments, and another on the criminalization of money laundering. On 16 October, the committee held an expert hearing on the topic of parliamentary strategies to strengthen peace and security against threats and conflicts resulting from climate-related disasters and their consequences, which will be the subject of the committee’s resolution at the next IPU Assembly.[14] Senator Saint-Germain attended the 15 October meeting.

2. Standing Committee on Sustainable Development, Finance and Trade

The Standing Committee on Sustainable Development, Finance and Trade met on 14 and 16 October 2019. On 14 October, the committee discussed preparations for the Parliamentary Meeting at the United Nations Climate Change Conference (COP 25) and the draft outcome document. The committee also held a debate on mainstreaming digitalization and the circular economy to achieve the Sustainable Development Goals (SDGs), with a particular emphasis on responsible consumption and production, which will be the subject of the committee’s resolution at the next IPU Assembly. On 16 October, the committee held a debate to follow-up on its 2014 resolution, Towards risk-resilient development: Taking into consideration demographic trends and natural constraints.[15] Senator Dawson attended the 14 October meeting.

3. Standing Committee on Democracy and Human Rights

The Standing Committee on Democracy and Human Rights held sessions on 14 and 16 October 2019, during which the committee considered a draft resolution entitled Achieving universal health coverage by 2030: The role of parliaments in ensuring the right to health. The topic had been proposed by the Bangladeshi delegation at the 139th Assembly and was the subject of a preparatory debate at the 140th Assembly. The Co-rapporteurs were Mr. H. Millat (Bangladesh), Mr. C. Löhr (Switzerland) and Ms. M. Carvalho (Brazil).

The Committee considered 116 amendments submitted by 21 member parliaments as well as amendments from the Forum of Women Parliamentarians. Senator Ravalia and Senator Saint-Germain attended the meeting on 14 October and spoke in favour of the five amendments proposed by the Canadian delegation. All five were incorporated in the final text of the resolution. It was adopted by consensus on 16 October 2019, with a reservation by India. The resolution was then adopted unanimously by the plenary Assembly on 17 October 2019.

The committee decided that its next resolution, to be finalized at the 143rd Assembly in October 2020, will be on the topic of legislation worldwide to combat online sexual child exploitation.[16]

Senator Saint-Germain also attended the meeting of this committee’s Bureau on 16 October 2019, replacing Sven Spengemann, M.P., whose mandate is effective until April 2021. The Bureau reviewed proposals for the subject item of the next resolution that will be drafted and adopted at the 143rd Assembly in October 2020 and planned the activities of the committee for the 142nd Assembly.

4. Standing Committee on United Nations Affairs

The Standing Committee on United Nations Affairs held one meeting on 16 October 2019. During its meeting, the committee held two panel discussions, one on respect for international law in keeping with the United Nations (UN) Charter and other relevant resolutions, and another on the results of a recent IPU survey on the relationship between parliaments and the UN.[14]

PARTICIPATION BY CANADIAN DELEGATES IN RELATED MEETINGS AND ACTIVITIES

A. IPU Governing Institutions

1. Governing Council[18]

The Governing Council is the plenary policy-making body of the IPU.[19] Several specialized bodies fall under the Governing Council’s responsibility and report to it on their work.[20] The Council is composed of three representatives from each IPU member parliament, provided that its representation includes both men and women parliamentarians.[21]

Meetings of the 205th Session of the Governing Council were held on 14 and 17 October 2019. All Canadian delegates attended at least one of these meetings.

The Governing Council had a number of items on its agenda, including the following:[22]

• Adoption of the agenda

• Approval of the summary records of the 204th session of the Governing Council

• Proposals for the election of the President of the 141st Assembly

• Financial situation of the IPU

• 2020 draft consolidated budget

• Report of the President

• Interim report by the Secretary General on the activities of the IPU since the 204^th session of the Governing Council

• Questions relating to IPU membership and observer status

• 130^th Anniversary of the IPU

• Strengthening the work of the IPU

• Reporting by Members on IPU-related activities

• Report on recent IPU specialized meetings

• Activities of committees and other bodies

• 142^nd IPU Assembly (April 2020)

• Future Inter-Parliamentary meetings

• Appointment of two internal auditors for 2020

• Amendments to the IPU Statutes and Rules

• Elections to the Executive Committee

The Governing Council considered the financial situation of the IPU, noting that three Members (Honduras, Mauritania and Papua New Guinea) had their membership suspended due to unpaid contributions. A new scale of assessment for contributions was introduced for 2020, which will lead to China becoming the largest contributor to the IPU’s core budget. The council approved the Assemblée parlementaire de la Francophonie as an Associate Member, and PARLASUR (MERCOSUR Parliament) and the International Parliament for Tolerance and Peace as observers. The council also approved the creation of a new Working Group on Science and Technology and amendments to its Statutes and Rules to strengthen existing sanctions for single-sex delegations.

Senator Ataullahjan thanked the IPU Secretary General and secretariat for their good work following the Secretary General’s report and spoke in favour of the IPU Executive Committee’s recommendation on continuing to maintain dialogue with both parliamentary factions in Yemen. Canada voted in favour of the recommendation, which was approved in a subsequent roll call vote. Senator Saint-Germain raised concerns about the proposal to establish a new working group on political sanctions, stating that the process that had been followed for its establishment was inappropriate due to lack of a detailed proposal and clear mandate. Similar concerns were raised by delegations from the Australia, Portugal and the United Kingdom. A decision on the working group was delayed until the 142^nd Assembly, when a more detailed proposal will be put forward.

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 implementation of the decisions taken by the Assembly and the Governing Council.[23]

The IPU Executive Committee held its 282nd session on 11, 12 and 16 October 2019.[24] Senator Ataullahjan replaced David McGuinty, P.C., M.P., who was elected to the Executive Committee at the 137th Assembly. Mr. McGuinty was elected to the position of IPU Vice-President for the Twelve Plus geopolitical group at the 139th Assembly. The Senator was an active participant in all of the Executive Committee’s in camera meetings.

The Executive Committee considered reports from the IPU Secretary General and the IPU President, Ms. G. Cuevas Barron (Mexico), who was elected to a three-year term at the 137th Assembly.[25] Discussions touched on such topics as how to improve the IPU’s cooperation with the UN. In this regard, the committee approved the hiring of an international expert to evaluate IPU/UN relations.

The Executive Committee made a series of decisions later considered by the Governing Council, regarding new working groups, the admission of associate members and observers and proposed amendments to the IPU Statutes and Rules. In addition to the decisions mentioned in the above section on the Governing Council, the decision was made to dissolve the Working Group on Syria due to its inability to carry out its mandate.

The committee also received an update on the preparation of a book as part of the organization’s 130^th anniversary. Committee members were encouraged to remind their geopolitical group colleagues about the deadline for national parliament contributions to the initiative.

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.[26]

The 30th session of the Forum of Women Parliamentarians took place on 13 October 2019. 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 Committee on Democracy and Human Rights;

• A panel discussion on the topic of eliminating discrimination in law to mark the 40th anniversary of the Convention on the Elimination of All Forms of Discrimination against Women; and

• Election of new members to the Bureau of Women Parliamentarians.[27]

A total of 82 parliamentarians from 76 countries participated in the Forum.[28]

Senator Ataullahjan and Senator Ravalia attended the Forum of Women Parliamentarians. During the Forum, participants were divided into two working groups to discuss the draft resolution on the 141^st Assembly’s agenda. The discussions led to suggested amendments, which were later incorporated into the draft resolution by the standing committee. Senator Ataullahjan chaired the working group on lifting legal, social, economic and financial barriers for women’s and girls’ access to health care services.

Senator Ataullahjan also participated in the Bureau of Women Parliamentarians, of which she is a member, on 13 and 17 October 2019. The Bureau considered the items on the agenda for the 30^th session of the Forum on Women Parliamentarians and prepared for the 31^st session.

C. Committee on Middle East Questions

The Committee on Middle East Questions held two meetings on 15 and 16 October 2019. The Committee’s activities included:[29]

• An update on the latest developments in the Middle East, in particular regarding the situations in Israel and Palestine, Libya, Syria and Yemen;

• Presentations by delegations from Libya and Yemen on the current situation in their respective countries;

• A discussion of the role and mandate of the committee;

• Plans for a mission to the Middle East and the holding of a round table meeting in Geneva.

Senator Ataullahjan was elected president of the committee at the 138^th Assembly in March 2018. As such, Senator Ataullahjan chaired both meetings of the committee and met with IPU Secretariat staff and committee members in furtherance of the committee’s agenda. Senator Ataullahjan’s term as president will end during the 142^nd Assembly.

D. Advisory Group on Health

The IPU Advisory Group on Health held a meeting on 15 October 2019. The group discussed the health situation in Serbia, including the healthcare system’s response to HIV/AIDS. The group also discussed the resolution on universal healthcare that was being considered during the Assembly and decided to create an accountability framework to monitor implementation of the resolution. While not a member of the group, whose meetings are generally restricted to group members, Senator Ravalia was invited to participate in the meeting.

E. Preliminary consultation on the 2021 Global Parliamentary Report

During the 141st Assembly, the IPU held a meeting jointly with the Association of Secretaries General of Parliaments and the United Nations Development Programme (UNDP) to get feedback from participants on proposed topics for the 2021 Global Parliamentary Report (GPR). The 2021 GPR follows previous reports published by the IPU and UNDP in 2012 and 2017. The majority of participants preferred the proposed topic that would address: the rise of participatory and direct democracy – challenges and opportunities for parliaments.[30] Senator Saint-Germain attended the session and spoke in favour of the direct democracy proposal, sharing an example from Canada of ways to seek broad engagement on legislative initiatives.

F. Side Event on Leaving no one behind: LGBTI inclusion and the SDGs

On 16 October 2019, Senator Dawson attended a side event organized by the Twelve Plus Geopolitical Group on the inclusion of LGBTI people. During the event, a representative from the UN Human Rights Office and four parliamentarians shared their perspectives on the issue based on their personal experiences as legislators and, for three of the four, as members of the LGBTI community. Senator Dawson spoke about the importance of pushing past the opposition to discussing such issues and of allowing for full and open debate on the challenges facing LGBTI individuals across the world as was done at the Assemblée parlementaire de la Francophonie. The group agreed to continue the discussion at future assemblies.

G. 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:[31]

• the 47-member Twelve Plus Group, which includes nations from Europe, as well as Australia, Israel, New Zealand and Turkey; 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 13 October 2019. Senators Dawson and Saint-Germain attended the meeting. Agenda items included the following:

• Address by IPU President, Gabriela Cuevas Barron;

• Briefing by Asia-Pacific members of the IPU Executive Committee;

• Vacancies to be filled during the Assembly, including to the IPU Executive Committee; and

• Consideration of proposed emergency items

During the meeting, Senator Dawson spoke about the process for selecting new members to the Executive Committee.

2. Twelve Plus Group

Meetings of the Twelve Plus Group were held on 12, 14, 15 and 17 October 2019. Each Canadian delegate participated in at least one these meetings. Agenda items included the following:

• Organization of a side event on the LBGTI inclusion;

• Proposed amendment to the group’s rules;

• Summary of discussions at the IPU Executive Committee;

• Discussion on the resolution to be adopted at the Assembly;

• Reports from the Twelve Plus representatives on various IPU plenary bodies and specialized committees

• Elections for vacancies to be filled during the Assembly; and

• Consideration of proposed emergency items.

Canadian delegates were active participants in the group’s meetings. Senator Dawson supported the proposed emergency item from France and highlighted the need to solicit the support of other geopolitical groups. He also spoke in support of the proposed changes to the rules of the group. Senator Ataullahjan provided a summary of the IPU Executive Committee meetings, highlighting concerns raised by the Canadian delegation regarding a proposed new working group on political sanctions, as well as the changes that had been made to the general debate outcome document at the request of China.

H. Bilateral Meetings

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

• Australia, New Zealand and United Kingdom

• Japan

• Pakistan

• Rwanda

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;

• Matters on the agenda of the IPU Assembly;

• Matters of Canadian domestic policy, and their applicability as templates for similar legislation in other countries; and

• Opportunities for improving relations between Canada and the other country in question, including increasing trade relations and working in partnership in areas such as health, education and the environment.

The delegation also met with a representative of the Global Fund to Fight AIDS, Tuberculosis and Malaria to discuss the results generated by Canada’s support of the organization’s operations around the world.

The delegation met with the Canadian Ambassador to Serbia, Kati Csaba. During the meeting, the ambassador briefed delegates on Canadian relations with Serbia as well as domestic and regional issues. 

Senator Dawson and Ambassador Csaba attended the reception in honour of parliamentarians hailing from member states of the Organisation internationale de la francophonie, a further opportunity to forge relationships and discuss matters of common interest.

Respectfully submitted,

The Hon. David McGuinty, P.C., M.P.,

President

Canadian Group of the Inter-Parliamentary Union