Investigation finds ‘predatory culture’ in Assembly of First Nations

The Assembly of First Nations — the national representative for First Nations across Canada — has a “predatory culture” that subjects women employees and others to offensive contact, assault and abuse from the chiefs, elders and knowledge keepers in charge, according to a shocking investigative report released at the assembly’s annual meeting.

The report, titled simply, “AFN Resolution 13 Panel Final Report,” was released quietly Wednesday, July 12, without any formal discussion at the AFN’s Annual General Assembly meeting in Halifax, Nova Scotia.

The release brought an immediate and often-emotional response from those in attendance and others watching the gathering online. Dozens of traditional healers, helpers and other mental health workers were on site, and many of those who spoke in response to the report were smudged during their testimonies.

“A predatory culture has become so pervasive and threatening within the AFN that female employees and leaders share information with each other about men who are unsafe to be around,” the report concluded.

“Unacceptable behavior at these events appears to be an open secret,” the report continued. “Women have been warned by various individuals inside and outside the AFN to be careful of what they wear while attending events, and have been warned specifically about particular individuals whose inappropriate behaviour is well known.”

Women told investigators they endured sexual assault, inappropriate touching or kissing, sexually explicit texts or emails, wolf whistles, lewd comments and other offensive behavior, and felt their jobs would be threatened if they complained.

The report noted that the abuse is often perpetrated by those entrusted with the organization’s mission.

“Too many individuals within our Indigenous community have experienced sexualized and suggestive comments, unwanted and unwelcome touching, or bullying at the hands of Elders/Knowledge Keepers, who are protected by their own position and by others who are in positions of power,” the report states.

The report was released just one day after the forced removal of the AFN’s first female national chief, RoseAnne Archibald, whose supporters said she was targeted because she was a woman.

Interim National Chief Joanna Bernard, appointed to fill the position until an election can be held in December, released a statement calling for changes to internal AFN policies but did not address any repercussions or action to be taken against the perpetrators.

““We are deeply disturbed by the findings,” Bernard said in a statement released Wednesday, July 12. “No individual should ever experience sexual orientation – or gender-based discrimination, hate or bullying of any kind. As we review the report’s recommendations closely, the AFN Executive Committee unequivocally commits to concrete action to address what we’ve learned and are learning from those who have shared their stories.”

The panel that produced the report was made up of Indigenous women with backgrounds in law and mediation: Dr. Gwedolyn Point, Stó:lõ, the Knowledge Keeper for the British Columbia Assembly of First Nation Chiefs and former chancellor at the University of Fraser Valley; Debbie P. Hoffman, Woodland Métis and Algonquin of the Pikwàkanagàn First Nation, a lawyer and mediator; and lawyer Amanda Barnaby Lehoux, Mii’gmaq from the Listuguj First Nation in Gespe’gewa’gi.

The AFN is the largest Indigenous organization in Canada, representing more than 630 First Nations in Canada with regional chiefs in all 10 provinces as well as the territories of Yukon and the Northwest Territories.

The head office is in the national capital of Ottawa and operates on a budget of $52.6 million in Canadian dollars provided primarily by the federal government’s Department of Indigenous Services. It has a staffing budget of $18.3 million.

All First Nations are not active members in the national organization, but many remain active in the regional organizations.

Harassment and abuse

The report came in response to Resolution 13 approved in 2020, which ordered an independent investigative review of the AFN to assess systemic discrimination based on gender or sexual orientation experienced by people involved with the AFN.

The investigation was aimed at “ending such discrimination and all other forms of violence, including sexualized violence, lateral violence, bullying, and cyber-bullying in the organization,” according to the report.

Over about 18 months, the panel sought comment from hundreds of people about their experiences, knowledge and recommendations. The report does not specify how many people participated and notes that some details were withheld to avoid identifying those who shared their experiences through interviews, surveys or written comments.

The report found repeated examples of sexual misconduct and predatory practices, including unwanted touching, abuse of power and position, suggestive comments, as well as harassment and discrimination that included bullying, gender-based discrimination and verbal harassment.

The report said the treatment created a “demoralized work culture” that left those targeted feeling unsafe, lacking confidence in leadership and fearing reprisal if they complained.

“Female interviewees told us that personal boundaries are routinely violated by male employees, Elders, Knowledge Keepers, and Chiefs,” the report stated. “These individuals are allowed to continue preying upon members … without reprimand or repercussion. Each time a known predator or abuser is allowed to attend AFN assemblies and events, those who have experienced violence, bullying, or abuse at their hands are retraumatized by the predator’s attendance. The message to those who have been harmed is they don’t matter to an organization that refuses to keep them safe.”

“Bad behaviour – whether sexual harassment, bullying, or lateral violence – was viewed by many within and outside the AFN as “normal” or “just how things are.” Those who experienced these bad behaviours were often gaslighted and told they were “overreacting,” or the severity of the behaviour was downplayed.”

The report states that comments were often made about women’s bodies.

“Some have been told that specific clothing would look ‘really good’ or ‘really sexy’ on them; others have been told their bodies aren’t appealing, or not to dress a certain way again because it’s distracting for men,” the report stated.

Although some comments could be considered subtle others were literally pornographic, the reported noted.

“Employees have been subjected to explicit comments about sex and pornography or asked to watch pornography with men in leadership positions,” according to the report.

The report also documents abuse of power and position by male AFN employees and chiefs who have directed female employees to do things that are clearly not part of their job descriptions.

“The behaviours described to us are nuanced and include comments about it being ‘part of the job’ to work one-on-one with a male employee after hours, to accompany a male employee to dinner, and to run non-work-related errands for male employees,” the report concluded.

Technology has also opened new doors for abusers.

“Employees have been asked to send or have received explicit pictures,” the report stated. “Still others have received sexual texts and have been invited to the rooms of men in positions of power when working at assemblies and other AFN events out of town.”

Three independent experts were hired to review the report: Myrna McCallum, a Métis Cree lawyer and expert on trauma-informed policy; Bay Ryley, a human rights and employment lawyer who owns and operates a digital company focusing on corporate sexual harassment training; and Fay Faraday, a social justice lawyer, policy consultant, and academic whose work focuses on the human rights, labour, and employment law.

Calls for action

The report was triggering for many individuals in attendance.

The first speaker to the microphone after the report was presented was an elder who had survived the Canada’s notorious Indian Residential School system. He was trembling with emotion, fighting back the tears that threatened to run down the wrinkles of his weathered face.

“It’s very, very sad,” said Ted Quewezance, Keeseekoose First Nation. “What you heard, what was presented, especially the perpetrators who are doing it and who have done it. It just brings back, you know, each survivor has that little boy or that little girl inside of them and it comes out.”

Quewezance expressed his long-term support of the organization and his shock at what he had just heard.

“I’m a very proud man of AFN,” he said. “Because I was a part of AFN, right from 30 years ago, 35 years. And to hear this, it’s just shocks me. Especially hearing elders, some elders done it, abuse and abused, some knowledge keepers. That’s why we’ve got to be very careful who we hire. Just because you’re dressed like an Indian and your hair is in braids and everything else. You’re a knowledge keeper and you tell us you could do the job. You’ve got to do your due diligence. You’ve got to do the history of those people where they come from, for the safety of our young women.”

Speaking over Zoom, Chief Lynne Acoose, Sakimay First Nation, shared some of the challenges she has faced as her community’s first woman chief.

“I fought very hard to reestablish our place as decision-makers within our nation,” she said. “And I won’t get into details, but I have experienced everything from undermining, physical violence, verbal abuse, I could go on. But I want to say that my experience has taught me that in order to create a safe space, we need expertise.”

She also called on Interim National Chief Bernard to apologize for language used to oust Archibald.

“Last week at the (online) assembly, I heard the interim national chief accuse the former national chief of bringing gender politics into the discussion,” Accose said. “And I felt that my work was being gaslighted when I heard that, and so as a starting point, I think that I will ask for an apology from the interim national chief for her words.”

Joan Jack, Berens River First Nation, a lawyer and founder of the online group Deadly Kookums and Aunties, said the way Archibald was treated by the assembly was painful to watch for First Nations women living with abuse.

“How does this impact us as Indigenous women? I’ve been in conversation since this episode started with many Indigenous women who have reached out to me saying they’re re-traumatized,” Jack told ICT. “They’re experiencing misogyny in their own lives every day, in their communities, on their reserves, in their careers, and seeing a woman at the national level be treated this way and have that behavior justified through the exercise of the White law and White policy, ideology, just compounds our colonization.”

Jack has been promoting the hashtag #Indigenousmetoo on social media.

“We really need #Indigenousmetoo,” Jack said. “We really need to be brave as women and men. Not all of the men in my life behave this way, but I’m calling upon the men in my life who know what other men are doing is wrong and to stand with us.”

List of recommendations

The report spells out recommendations for changing the culture in AFN but notes that the panel was not tasked with addressing the consequences for the perpetrators.

The recommendations include creation of an Independent Office for Complaints and Investigations, with an independent office set up temporarily until the formal office can be put in place.

The panel proposed a trauma-informed approach at AFN, with changes to internal documents to expand the definitions and listings of abusive behavior as well as the organizational bylaws, Code of Conduct and Ethics and anti-discrimination policies. It also calls for mandatory training for officials and a zero-tolerance policy with additional oversight at all AFN events.

The report also recommended a “decolonization of the AFN,” with a “return to Indigenous culture and ceremony.

“We ask the Chiefs in Assembly and the AFN as a whole to receive the information in this Report with the love, respect, courage, and humility with which it is presented, in accordance with the Seven Teachings,” the report states.

Bernard’s statement on Tuesday indicated that some of those recommendations will be considered.

“On behalf of the Assembly of First Nations Executive Committee, we thank the brave individuals who came forward to share their truths,” Bernard stated. “We are moved by your courage. We hear you, and we stand by you. To those who spoke on the Assembly floor and opened their hearts to the room, we recognize the power in your words, and we thank you for your strength.

“Measures will include steps to enhance, renew or modify our existing policies, codes of conduct, development of new harassment reporting procedures, and ensure a safe and respectful working environment that relies on First Nations teachings and traditions,” Bernard said.

“These measures will be designed to properly inform, prevent, and address any incidents of sexual orientation and gender-based discrimination and to ensure such behaviour is never again tolerated at the AFN. This will include urgent action to introduce a zero-tolerance policy in the workplace and at all AFN events, and ensure all complaints are taken seriously and acted upon promptly, with a proper, trauma-informed investigative process in place to ensure accountability.

She concluded, ‘The personal and professional well-being of our staff, AFN members, and all First Nations is our utmost priority, and we do not take this responsibility lightly. We are committed to fostering an inclusive and respectful environment where everyone feels safe and valued.”