REPORT

OVERVIEW

A delegation from the Canadian Group of the Inter-Parliamentary Union (IPU) attended the 137^th IPU Assembly and related meetings in St-Petersburg (Russian Federation) from 14 to 18 October 2017. The Canadian delegation was comprised of the following members:

• Mr. David McGuinty, M.P., President of the Canadian IPU Group and head of the delegation
• Honourable Dennis Dawson, Senator
• Honourable David Tkachuk, Senator
• Ms. Pam Damoff, M.P.
• Mr. Sven Spengemann, M.P.
• Mr. Larry Miller, M.P.
• Honourable Michelle Rempel, M.P.
• Mr. Thomas Mulcair, 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 the side meetings that arise during IPU assemblies.

Throughout the 137^th Assembly, members of the Canadian delegation engaged in exchanges with their counterparts and participated in various debates in an attempt to further the principles of representative democracy, the rule of law, human rights and gender equality. They also addressed matters pertinent to Canadian foreign policy, including the persecution and violent attacks on the Rohingya in Myanmar, as well as the promotion of cultural pluralism and peace through interfaith and inter-ethnic dialogue.

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 135^th Assembly[2].

THE 137TH IPU ASSEMBLY

A. The 137th 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 137^th Assembly included the following items:

• Election of the President and Vice-Presidents of the 137^th Assembly;
• Consideration of requests for the inclusion of an emergency item in the Assembly agenda;
• General debate on Promoting cultural pluralism and peace through inter-faith and inter-ethnic dialogue
• Resolution on Sharing our diversity: The 20th anniversary of the Universal Declaration on Democracy (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 139^th IPU Assembly and appointment of the Rapporteurs
• Debate of an emergency item on Ending the grave human crisis, persecution and violent attacks on the Rohingyas as a threat to international peace and security and ensuring their unconditional and safe return to their homeland in Myanmar.^[4]

Overall, delegations from 155 member parliaments participated in the activities of the 137^th Assembly. Of the 1,885 delegates in attendance, 833 were members of national parliaments; they included 87 Presiding Officers and 66 Deputy Presiding Officers, as well as 249 women parliamentarians (30% of all parliamentarians participating).

B. The General Debate

At the 137^th Assembly, a general debate was held on the topic of “Promoting cultural pluralism and peace through interfaith and inter-ethnic dialogue.” During the debate, which was held over three days, representatives of 118 Member Parliaments, and 7 partner organizations took the floor to address this theme.[5]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. He indicated that the intermingling of cultures is now the norm rather than the exception, and that diversity, a society’s greatest strength, is reflected in Canada’s laws and political institutions. He recalled Canada’s efforts to welcome displaced and persecuted people and the role immigrants play in Canadian society. He also acknowledged the particular responsibility that Canadian parliamentarians have to achieve true reconciliation with Canada’s Indigenous Peoples, who have faced centuries of abuse, exclusion and segregation. Finally, he stressed that lesbian, gay, bisexual, transgender and intersex people require parliamentarians’ full attention and protection across the globe.

On 18 October 2017, David McGuinty, M.P. delivered a speech to the Assembly providing an overview of the St. Petersburg Declaration, the outcome document that reflects the key messages and policy recommendations from the 137^th Assembly’s General Debate.[6] The Assembly then adopted the Declaration at its concluding sitting.

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 137^th Assembly received 18 requests for the inclusion of an emergency item on its agenda. Many of those original proposals were merged with others or subsequently withdrawn. Following the consolidation process, three items remained, two on the situation of the Rohingya minority in Myanmar and one on the threats posed by the nuclear tests conducted by the Democratic People’s Republic of Korea. Following a roll-call vote, the proposed emergency item entitled “Ending the grave human crisis, persecution and violent attacks on the Rohingya as a threat to international peace and security and ensuring their unconditional and safe return to their homeland in Myanmar” put forward jointly by Morocco, Indonesia, United Arab Emirates, Bangladesh, Kuwait, Iran, Sudan and Turkey was added to the 137^th Assembly’s agenda.[9] The Canadian delegation voted in favour of this item and in favour of the item on North Korea’s nuclear tests proposed by Mexico and Japan. Canada voted against the item proposed by Myanmar.

A debate on the emergency item was held on 16 October 2017; Thomas Mulcair, M.P. spoke on behalf of the Canadian delegation, recalling that the Parliament of Canada has held two emergency debates on this issue. He strongly condemned the violence perpetrated by the Government of Myanmar against the Rohingya minority. The topic was subsequently referred to a drafting committee, which was tasked with finalizing a resolution on the topic. Thomas Mulcair, M.P. chaired the drafting committee.  On 17 October 2017, the Assembly adopted the resulting resolution by consensus, condemning all gross violations of human rights in Rakhine State, Myanmar, and calling upon the authorities of Myanmar to take urgent and immediate action to end all violence and to grant citizenship and all other rights to the Rohingya people. The delegation from China expressed reservations on parts of the resolution, while the delegation from Myanmar rejected the resolution in its entirety.[10]

D. 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.[11] At the 129^th 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.

During the 137^th Assembly, the Standing Committee on Democracy and Human Rights debated a draft resolution.

1. Standing Committee on Peace and International Security

The Standing Committee on Peace and International Security held two sessions on 17–18 October 2017 in order to:[12]

• discuss the role of parliament in monitoring the action of national armed forces participating in United Nations peacekeeping operations;
• discuss the implementation of a previous resolution on cyber warfare; and
• debate the subject matter of the resolution to be considered at the 138^th Assembly on “Sustaining peace as a vehicle for achieving sustainable development.”

Larry Miller, M.P. attended the 18 October 2017 session of this committee.

2. Standing Committee on Sustainable Development, Finance and Trade

The Standing Committee on Sustainable Development, Finance and Trade held two sessions on 16–17 October 2017 in order to:[13]

• discuss the parliamentary contribution to the 2017 United Nations Climate Change Conference;
• debate  the subject matter of the resolution to be considered at the 138^th Assembly on “Engaging the private sector in implementing the SDGs, especially on renewable energy;” and
• discuss with an expert panel the topic “Using science and research to achieve the highest health standards.”

3. Standing Committee on Democracy and Human Rights

The Standing Committee on Democracy and Human Rights addressed the topic: “Sharing our diversity: The 20^th anniversary of the Universal Declaration on Democracy.” The Committee met on 15, 16, and 17 October 2017.[14]

The Standing Committee finalized the draft resolution prepared by the co-Rapporteurs, Ms. S. Dev (India), Mr. N. Schrijver (Netherlands) and Mr. I. Umakhanov (Russian Federation) during a plenary session. It had 90 amendments to consider,[15] including several that had been submitted by the Canadian delegation.

During the plenary debate on the proposed amendments, Pam Damoff, M.P., Larry Miller, M.P. and the Honourable Michelle Rempel, M.P. presented and explained Canada’s proposed amendments, which complemented and were intended to build on the existing draft resolution.  Pam Damoff, M.P. also presented the amendments submitted by the Forum of Women Parliamentarians. Several Canadian amendments were incorporated into the resolution. Sven Spengemann, M.P. and Senator Tkachuk also attended the sessions of the Committee. On 17 October, the Committee adopted the resolution as amended.

Sven Spengemann, M.P. also 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. Sven Spengemann, M.P. presented to the Bureau the topic proposed by Canada for the 139^th Assembly on “Parliaments’ role in Protecting the Rights of Minorities.” The explanatory note stated that throughout the world, the actions of some political leaders and legislatures continue to undermine the rights of minorities and render their situations precarious. Several minorities are subjected to a number of human rights abuses, including hate speech, racially and ethnically motivated attacks on civilians, and the enactment of laws that disenfranchise the most vulnerable. An IPU resolution could call on parliaments to review the compliance of their legislative framework with their international human rights obligations. In the end, the Bureau chose to recommend another topic put forward by Morocco 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.”

During its final sitting, the Committee adopted the proposed topic from Morocco that will be debated at the 139^th Assembly. It also approved a proposal from Belgium to hold a panel discussion during the 138^th Assembly entitled “The role of parliaments in ending discrimination based on sexual orientation and gender identity, and ensuring respect for the human rights of LGBTI.” This proposed discussion would not lead to a resolution.

4. Standing Committee on United Nations Affairs

The Standing Committee held a session on 15 October 2017 in order to discuss:[16]

• The parliamentary dimension to the United Nations – 20 years in the making; and
• The role of the UN General Assembly in international governance: What path forward?

Senator Dawson attended the Committee’s session. He participated as a panellist in the discussion on the parliamentary dimension of the United Nations. He recalled that parliamentarians are the legitimate representatives of the people and that the United Nations needs to engage with them, noting that since the majority of parliamentarians are in opposition, a parliamentary dimension of the United Nations is necessary for their voice to be heard.  He stressed the importance of diplomacy in avoiding escalation and preventing wars, and the need to work with young people to ensure there is no divide between generations in the policy making process.

Senator Dawson also participated in the meeting of the Bureau of the Standing Committee on 15 October. Members reviewed recent activities of the IPU at the United Nations or in cooperation with the United Nations and its various entities. The Bureau decided to dedicate the Committee session during the 138^th Assembly in March 2018 to preparations for the UN High-Level Political Forum on Sustainable Development (HLPF).

PARTICIPATION BY CANADIAN DELEGATES IN RELATED MEETINGS AND ACTIVITIES

A. IPU Governing Institutions

1. Governing Council[17]

The Governing Council is the plenary policy-making body of the IPU.[18] Moreover, several committees fall under the Governing Council’s responsibility and report to it on their work.[19] The Council is composed of three representatives from each IPU member parliament, provided that its representation includes both men and women parliamentarians.[20]

Meetings of the 201^st Session of the Governing Council were held on 15 and 18 October 2017. All Canadian delegates attended at least one of these meetings.

The Governing Council had a number of items on its agenda, including the following:[21]

• election of the IPU President
• questions relating to IPU membership;
• budget for 2018;
• implementation of the IPU Strategy for 2017–2021;
• IPU co-operation with the UN system;
• reports on recent IPU specialized meetings;
• activities of committees and other bodies;
• future inter-parliamentary meetings; and
• elections to the Executive Committee.^[22]

The Council approved the request for affiliation from the Parliaments of Turkmenistan, Uzbekistan, Vanuatu, the Marshall Islands and Saint Lucia.

The Governing Council received an overview of the IPU's financial situation at 31 July 2017 and an updated list of the unpaid member contributions. It also considered and approved the draft budget for 2018. Following several years of decrease in Members’ assessed contributions from 2012 to 2016, the budget introduced an increase of 2% in contributions to respond to rising operational costs and inflation. In order to balance the budget, savings were proposed by holding both Assemblies in Geneva during 2018. At the same time, the IPU’s full range of activities will be maintained in the 2018 budget.

The Council provisionally approved to hold the 140^th Assembly in Buenos Aires (Argentina) in April 2019 pending the provision of visa guarantees for all participants by the Argentinian authorities.

The Governing Council approved the establishment of a High-Level Advisory Group on Countering Terrorism and Violent Extremism. David McGuinty, M.P. was appointed as one of the 12 members of this group, who will finalize its working modalities before the 138^th Assembly.

At its last sitting, the Governing Council elected Ms. Gabriela Cuevas Barron (Mexico) as its President for a three-year term ending in October 2020. Ms. Cuevas Barron is a current Senator and the youngest parliamentarian to be elected to this position, and only the second women, in the entire history of the IPU. The Governing Council also elected David McGuinty, M.P. to serve on the IPU Executive Committee for a four-year term ending in October 2021.

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 on the agendas of IPU assemblies and/or the Governing Council.^[23]

The 26^th Forum of Women Parliamentarians took place on 14 October 2017. Agenda items included the following:[24]

• a briefing on the work done at the Bureau of Women Parliamentarians;
• a briefing on the work and recommendations of the Gender Partnership Group;
• consideration, from a gender perspective, of the draft resolution entitled “Sharing our diversity: The 20th anniversary of the Universal Declaration on Democracy” on the agenda of the 137^th Assembly;
• a panel discussion marking the fifth anniversary of the Plan of Action for Gender-sensitive Parliaments; and
• a hearing of the candidates for the position of President of the IPU.

There were 114 delegates in attendance from 74 different countries.

Pam Damoff, M.P., Sven Spengemann, M.P. and the Honourable Michelle Rempel, attended this Forum of Women Parliamentarians, where participants were divided into two working groups to provide recommendations for the draft resolution on the 137^th Assembly’s agenda. The discussions led to suggested amendments to the draft resolution. Pam Damoff, M.P.  was chosen to present these suggested amendments during the meetings of the Standing Committee on Democracy and Human Rights. All of these amendments were subsequently included in the final resolution.

Sven Spengemann, M.P. acted as the moderator of the panel discussion marking the fifth anniversary of the Plan of Action for Gender-sensitive Parliaments. Sven Spengemann, M.P. and Pam Damoff, M.P.  provided examples of gender-sensitive initiatives that have been implemented in the Parliament of Canada including the code of conduct for Members for the prevention and resolution of harassment in the workplace and Bill C-309: An Act to establish Gender Equality Week. Pam Damoff, M.P.  presented the Daughters of the Vote initiative where 338 young women representing every federal riding in Canada were invited to take their seat in the House of Commons for a day, to represent their community and to communicate their vision for Canada. She also noted that with women representing only 28% of MPs and a gender balanced cabinet, there are fewer women available to sit on parliamentary standing committees in the Canadian House of Commons. 

C. The Forum of Young Parliamentarians of the IPU

The Forum of Young Parliamentarians of the IPU was created in March 2014 as a permanent body dedicated to enhancing the quantitative and qualitative participation of youth in parliaments and in the IPU. Its objectives are to:

• broaden diversity and inclusiveness by increasing the presence of young parliamentarians at IPU Assemblies and meetings;
• strengthen the added value of youth in the IPU by incorporating a youth perspective in the IPU’s agenda and work and building bridges between the IPU and youth organizations;
• achieve better parliaments and stronger democracies by promoting youth participation in parliaments and reaching out to young people involved in politics; and
• ensure better follow-up and implementation of decisions and recommendations contained in the IPU resolution on "Youth participation in the democratic process", adopted by the 122nd Assembly in Bangkok.

The Forum met on 15 October 2017.[25] The Honourable Michelle Rempel attended this session. There were 60 young parliamentarians in attendance, 36% were women.

D. 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:[26]

• the 47 member Twelve Plus Group, which includes nations from Europe, as well as Australia, New Zealand and Israel; and
• the 34 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 2017. Senator Dawson, Senator Tkachuk, Pam Damoff, M.P., Sven Spengemann, M.P., Larry Miller, M.P., the Honourable Michelle Rempel, M.P., and Thomas Mulcair, M.P. attended the meeting.

Agenda items included the following:

• briefing by IPU Executive Committee members;
• report from the ASEAN+3 Group;
• review of vacancies to be filled during the 137^th Assembly; and
• discussion of emergency item to be added to the Assembly’s agenda;

2. Twelve Plus Group

Meetings of the Twelve Plus Group were held on 14, 16, and 18 April 2017. Senator Dawson, Pam Damoff, M.P., Sven Spengemann, M.P., and David McGuinty, M.P. participated in these meetings.

Agenda items included the following:

• report on the Group’s Steering Committee meeting, held in Porto on 11 September 2017;
• report from the Group’s representatives on the work of the IPU Executive Committee;
• hearing with the candidates for the position of President of the IPU
• elections to fill vacancies;
• debate of the emergency item;
• review of meetings of the IPU standing committees and other bodies; and
• discussion of matters related to the Group, including a new logo and the dates of future meetings

David McGuinty, M.P. offered an update on the preparation of the Fourth Global Conference of Young Parliamentarians, which would be held in Ottawa in November 2017.

The Group elected David McGuinty, M.P. to serve on the IPU Executive Committee as one of its representatives.

E. Bilateral Meetings

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

• Afghanistan;
• Azerbaijan;
• China;
• Iraq;
• Israel;
• Mexico;
• Somalia; 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:

• peace and security including terrorism, the Middle-East peace process, and the relations between the United States and North Korea;
• democratic development and human rights; and
• economic development and trade including the North American Free Trade Agreement and Canada-United Kingdom relations post-Brexit .

Respectfully submitted,

David McGuinty, M.P.,

President,

Canadian Group of the Inter-Parliamentary Union