FROM REPORT TO SUBSTANTIVE CHANGE – HEALING, RECONCILIATION

AND IMPLEMENTATION

A POLICY DISCUSSION REPORT PREPARED FOR THE MISSING WOMEN COMMISSION OF INQUIRY

APRIL 2012

BY DR. MELINA BUCKLEY

Statement of Purpose

This paper is a policy discussion report prepared by the Missing Women Commission of Inquiry to facilitate public input and to assist in deliberations on potential recommendations for change. The Commission invites public input on the issues, policy options and questions raised in this report and other issues within its terms of reference. Please provide us with your written submissions by May 31, 2012. The report provisionally identifies a series of issues and questions that are likely to inform the Commission’s analysis. Neither the Commissioner nor Commission staff has reached any conclusions on these issues. This is a summary of the major issues identified so far, but the list of issues and options is neither exhaustive nor fixed. We encourage interested parties to provide input and make recommendations on other issues and questions we have not identified.

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1. INTRODUCTION Many reports have already been published on how to improve missing womeninvestigations and how to address the root causes that contribute to thevulnerability and marginalization of specific groups of women, including street‐engagedwomenandsurvival sex tradeworkers, andAboriginal girls andwomen.TheCommission’sreportwillprovideanadditionalperspectivebyfocusingonthepolicing aspects of these issues and,more particularly, onwhatwentwrong in aspecificseriesofmissingwomeninvestigations.In its consultations to date, the Commission has heard thatwhat is needed is anaction plan formoving forward. The Commission has been encouraged tomakerecommendations specifically tailored to the implementation of its report.Therefore, the Commission is seeking input on best practices for initiating,managing and sustaining the change process that is required tomake vulnerablewomensafer.TheCommissioniswellawarethatmanyfamilymembers, friendsandcommunitymembersgrievethe lossof themissingwomenand, inparticular, thatthemissingwomenweremotherstomanychildrenwhoarelefttocopewiththedevastationofthese untimely and tragic deaths. In its consultations the Commission has heardabout the intergenerational impacts of these violent deaths and the weight ofuncertainty of thosewhomourn thewomenwho continue to bemissing and aremissed. Acknowledging this loss underscores the urgency of the need to achievesubstantivechange.Initiating,managingandsustainingchangeisahugetopicthatspansmanydifferentschoolsofthoughtandapproaches,frompsychologytoorganizationalmanagement.Thisbriefpapercannotpurporttosetoutevenasuperficialtreatmentofallofthisliteratureandresearch.Rather,thisdiscussionpaperprovidesanoverviewoffourapproachesorschoolsof thought thatmayberelevant to implementingchange inthecontextoftheCommission’sreport.Theseareacknowledgmentandreckoning;healing and reconciliation; the “wicked problems” approach to complex socialproblems;andorganizationalchangemanagement.In the Canadian context, many of the central concepts and processes have beendeveloped, refined and applied in the context of the ongoing truth, healing andreconciliationprocesses toaddress the legacyof residential schoolsonAboriginalpeoplesand,morebroadly,torestoretherelationshipbetweenAboriginalpeoples

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andnon‐Aboriginalpeoples.Attheinternationalleveltheseapproacheshavebeendeveloped mainly in response to mass human rights violations and genocide.Neither is a perfect analogy to the situation of missing and murdered women;however,theunderlyingpremisesandtechniquesdevelopedintheseothercontextsmaybeinstructiveandcouldbeadaptedtotheissuescoveredintheCommission’smandate.Thisapproachisconsistentwiththeleadingtextontraumaandrecovery,whichisbasedonanunderstandingthattherearecommonalitiesintheaftermathofalltypesofviolence,fromdomesticabusetopoliticalterror.1In her doctoral dissertation, Dr. Kim Stanton explores the extent to whichcommissions of inquiry can fulfill a truth and reconciliation function.2 Withreference to theBerger Inquiry into theMackenzieValleyPipeline, she concludesthatwith visionary leadership and an effective process, a public inquiry can be apedagogical tool that promotes social accountability for historical injustices. TheMissing Women Commission of Inquiry’s more limited terms of reference haveconstrainedthisfunction.However,theCommission’sreportandrecommendationsforfutureactioncouldcontributetofurtherdevelopmentsalongthisline.Thepurposeofthisdiscussionreport istofacilitatepublic inputanddeliberationsonhowtomoveeffectivelyfrominquiryreporttosubstantivechange,particularlyat the policy forum on this topic to be held in the near future. The concludingsectionsetsoutanumberofquestionsdesignedtofacilitatefurtherdiscussionandtogeneraterecommendationsforchange.The Commission welcomes input on all of aspects of this paper, including onadditionalissues,questionsandoptionsregardingpromisingavenuestocontributetosubstantivechangethroughtheCommission’sreportandrecommendations.

1JudithHerman,TraumaandRecovery:TheAftermathofviolencefromdomesticabusetopoliticalterror(NewYork:BasicBooks,1997).2KimStanton,TruthCommissionsandPublicInquiries:AddressingHistoricalInjusticesinEstablishedDemocracies(UniversityofToronto,FacultyofLaw,2010).Seealsoherarticle:“LookingForward,LookingBack:TheCanadianTruthandReconciliationCommissionandtheMackenzieValleyPipelineInquiry”,27CanadianJournalofLawandSociety(2012),pp.81‐99.

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2. OVERVIEW OF POTENTIAL APPROACHES 

(a) Acknowledgment and Reckoning ManyfamilymembersofmissingandmurderedwomenacrossCanadahavecalledforgreaterpublicacknowledgmentofthetraumathattheyhaveexperiencedandoftheir terrible loss. In the context of institutional abuse, the Law Commission ofCanada described the restorative process as having four components:acknowledgment,redress,healing,andreconciliation.3TheLawCommissionReportdefinesacknowledgementas:

Namingtheactsdoneandadmittingthattheywerewrong...Tobecomplete,anacknowledgementmusthavethreeotherfeatures.Itmustbespecific,notgeneral,andforthright,notreticent...Second,itmustdemonstrateanunderstandingoftheimpactoftheharmsdone...Third,itmustalsomakeclearthatthosewhoexperiencetheabusewereinnowayresponsibleforit.4

The Aboriginal Healing Foundation has concluded that education and publicawarenessofthe‘Legacy’ofresidentialschoolsiskeytohealing:

Byprovidingasocialcontextforwhathashistoricallybeenviewedasindividuals’problems,Legacyeducationcreatedaclimatethatfacilitatedmovementtowardhealingwithoutfirstfacingcrisis.LegacyeducationalsoprovidedaconstructiveframeworkforaddressingSurvivors’needs.Infact,opendiscussionaboutanddifferentattitudestowardtheLegacyhaveledtopublicdenouncementofpowerful,high‐profileperpetrators…informantswereclearthattheirworkwasnotcomplete,sinceignorance,denialandsilencepersist.5

In its comprehensive reviewandassessmentofhealingprocesses, theFoundationfound that documentation, history and honour for survivors made significantcontributions:

Dramaworkedwell,inbothacommunityandatherapeuticcontextinrecountinghistoryandhonourtoSurvivors.Accuratehistoricalaccountsof

3LawCommissionofCanada,RestoringDignity:RespondingtoChildAbuseinCanadianInstitutions(Ottawa:LawCommissionofCanada,2000).4Ibid,atp.81.5KishkAnaquotHealthResearch,FinalReportoftheAboriginalHealingFoundationVolumeIIMeasuringProgress:ProgramEvaluation(Ottawa:AboriginalHealingFoundation,2006),atp.249[“AHPFinalReportVol.II”]

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MétiscontributionstosocietycontributedtoincreasedMétisidentification,attendanceatLocalmeetingsandbroadercommunitycelebrationofMétishistoryandculture.HonouringSurvivorsfacilitatedunderstandingoftheLegacy,disclosureand,ultimately,counselling.Forothers,reviewinghistorywasamethodofengaginginremembranceandmourning,anessentialstageofhealingfromtrauma.6

Commissions can contribute to public acknowledgment by creating a sharednarrative based on information gathered during the truth‐seeking or fact‐findingprocess thatmoves away from a focus on individual problems and integrates anunderstandingofsocialcontext.Inordertobeeffective,thecommissionmustfirst“managetopenetratethecollectiveconsciousnessofthepeople.”7Itisnotsomuchaquestionofexposingfactsthatwerepreviouslyunknownandevenlessaquestionof uncovering “one truth.”8 Rather, the commissions can “make an indispensablecontributioninacknowledgingthesefacts”.9Others haveproposed thatmore than simple public acknowledgment is required;theycall forsocialorcollectivereckoning. Forexample,AmberRichelleDeanhascalled for “Reckoning with our individual and collective implication in thedisappearances ofwomen in theDTES” and their “untimely and unjust deaths”.10She argues that “the kinds of change needed to provoke something like justice inresponsetothedisappearanceofsomanywomenfromtheDowntownEastsidearenecessarily,thoroughly,socialorcollective.”11Fromthisperspective,changecannotoccur unless we confront ourselves and our social conditions, thereby creating a“responsiblememorialkinship.”12

6Ibid,atp.152.7ErinDalyandJeremySarkin,inReconciliationinDividedSocieties(Philadelphia:UniversityofPennsylvaniaPress,2007)at110ascitedbyKimStanton,“Canada'sTruthandReconciliationCommission:SettlingthePast?”2TheInternationalIndigenousPolicyJournal,(2011),atp.88Stanton,supra,atp.6.9PablodeGrieff,“JusticeandReparations”inJonMillerandRahulKumar,eds.Reparations:InterdisciplinaryInquiries(Toronto:OxfordUniversityPress,2007)153at161‐162ascitedinStanton,supra,atp.7.10AmberRichelleDean,Hauntings:RepresentationsofVancouver’sDisappearedWomen(UniversityofAlberta:DoctoralDissertation,2009),atp.236[unpublished]11Ibid.12Ibid,atp.225,citingRogerSimon,"TheTerribleGift:MuseumsandthePossibilityofHopewithoutConsolation,"21MuseumManagementandCuratorship(2006)187‐204,atp.203.

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(b) Healing and Reconciliation In the contextofdealingwith the aftermathof violenceand theongoing cyclesofviolence, healing is a process by which unresolved trauma can be addressed inmeaningfultermsinamannerthatworkstowardbreakingthecycleofabuse.Inherlandmark study that was the first to recognize post‐traumatic stress disorder,Hermandescribestraumarecoveryasunfoldinginthreestages:establishingsafety,reconstructing the traumastory(referred toasremembranceandmourning),andrestoringtheconnectionbetweensurvivorsandtheircommunity.13Individuals can suffer trauma inavarietyofways, includingby serious threatsorharm to loved ones. Trauma can have a range of different cognitive, emotional,physical,andbehaviouraleffectsonindividuals.Throughitseffectsonindividuals,traumaalsohasadramatic influenceoncommunities. Forexample,whentraumabecomesprevalent,societycanlosethesenseoftrust.Unresolvedtraumacanalsobetransmittedacrossgenerations.Healing can prevent future violence and facilitate reconciliation. To be effective,healingrequireslong‐termsupport.Testimonies,memorials,andgroupceremoniesmay be helpful for healing, but there is also risk that these acts could reinforceoppositional identities. Finding common goals to work toward facilitatesengagement.There aremany healing approaches.14 Healing can take place in various settingsand can focus on individual growth and/or community development and canaddress intergenerational impact.15 In the context of the legacy of residentialschools, increasing capacity of Aboriginal peoples to heal others throughmeetingtraining needs related to crisis intervention, trauma awareness, counselling skillsand family functioning is critical.16 TheAboriginalHealingFoundation found thatcommunitydynamicshaveaverystronginfluence:

Alsocreditedwithcontributingtosuccessareasafehealingenvironment,combininggrouplectureswithone‐on‐onecounselling,accessiblescheduling,supportiveleadership,complementarypartnerships,communitycommitmenttoandreadinessforhealing,andSurvivorinvolvementinprogramdevelopment.TeamscomposedofSurvivorsfromthecommunitywhoare

13Herman,supra.14AHPFinalReportVol.II,supra,“Definitions”.15Ibid.16Ibid,atpp.149‐150.

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skilledcounsellors—successfulontheirownhealingjourney,gentle,committedandprofessionalwithoutbeingimposing—wereconsistentlymosteffective.17

Thefollowingspecificfactorswerefoundtohelphealing:

Culturalpride,practiceandcelebration, Interagencycollaborationandprofessionalnetworks, Easy,localaccesstoavarietyofservices, Training, AwarenessoftheLegacy, Mediacoverage, Word‐of‐mouthcommunication, Publicapologies, Familysupport(particularlyregardingparentingskills), Studentsupport, Recreation(e.g.,Elders’gatherings,alcohol‐freesocialevents,youth

activities), Children’sservices, Youthprograms, Increasedopennessfacilitatedbylitigationandassociatedpublicity,and Individualsandcommunitiesgenuinelywantinghealing.18

TheunmetneedexperiencedbythefamilymembersofthemissingandmurderedwomenwasaddressedinanearlierstudyCommissionreportandthesecommentsarerepeatedhereforeaseofreference.19AsaresultoftheresearchandconsultationscarriedoutduringtheSistersinSpiritinitiative, NWAC came to the conclusion that “there is an enormous need forservices that promote healing including counseling, grief counseling, spiritualguidance,andsupportfromotherfamiliesexperiencingsimilarsituations.”20Theseservicesneedtobe“accessible,accommodating,timelyandflexible”andtheymustbeculturallyappropriate.

17Ibid,atp.153.18MarleneBrantCastellano,FinalReportoftheAboriginalHealingFoundation.Volume1–AHealingJourney:ReclaimingWellness(Ottawa:AboriginalHealingFoundation,2006).19TowardsMoreEffectiveMissingWomenInvestigations:PoliceRelationshipsWithVictims’Families,theCommunityandtheMedia(March2012).Availableathttp://www.missingwomeninquiry.ca/reports‐and‐publications/20PresentationbyKatharineIrngautofNWACatWesternRegionalForum,atp.9.

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Numerous families reported that these services are not available to them.21Furthermore, the support services that are available tend to be insufficientlysensitivetotheneedsofthefamiliesortothecultureofAboriginalfamilies.22Several Aboriginal communities have had success in utilizing a family gatheringmodel as a culturally appropriate crisis intervention model.23 NWAC has usedfamilygatheringstoassistinhealingincases,particularlywherewomenhavebeenmissing for a long time.24 The Sisters in Spirit vigils have also provided anexemplarywayforfamiliestohealandtoexperienceanoutpouringofcommunitysupportforthem.25Thesereportsalsomakerecommendationstailoredtotheneedsofthefamiliesandfriendsofmissingandmurderedwomen.

Havefullyfundedaccessibleservicestosupportfamiliesofmurderedand

missingpersons,inallcommunitiesacrossCanada,thattakeintoconsiderationtheparticularneedsofindividualsinremoteareas.

Providetravelsupportforfamilymembers,familyrespitespaceandseparatefamilyspaceforanycourtproceedings,andresourceguidesforfamilymembers,anddesignatetentareasatinvestigationsites.

Providethefamiliesofthemissingandmurderedwomenresourcesforsearches,fundingforculturalhealingservices,lossandgrievingcounselling,assistanceindealingwiththepoliceandthecourts,andfamilygatheringfunds.

TheDepartmentofAboriginalAffairsandNorthernDevelopmentCanada—incollaborationwiththeprovinces,territories,Aboriginalorganizations,andotherfederalgovernmentdepartments—supportthefamiliesandvictimsofviolenceagainstAboriginalwomen,whichshouldincludefundingforsearches,legalservices,courtassistance,victimservices,lossandgriefcounselingandculturalhealingservices.

Enhancepublicacknowledgementandsupporttorecognizethetraumaandgriefexperiencedbythefamiliesofmissingpersonsandtorecognizethespiritualconnectionincludingsomeformofmemorial.26

21Ibid.TheHighwayofTearsReportcomestoasimilarconclusion.22Ibid.23Saskatchewan First Nations’ Women’s Commission Secretariat Federation ofSaskatchewan Indian Nations, Missing First Nations Persons In Saskatchewan: Apreliminary Overview (March 31, 2007, Submitted For Review to: ProvincialPartnershipCommitteeonMissingPersons).24NWAC,VoicesofOurSistersinSpirit,supra,atpp.80‐82.25Ibid.26Ibid.

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Reconciliationmeans coming to accept one another and developingmutual trust.The focus here is on forgiveness, acceptance and seeing and building upon thepossibilityofaconstructiverelationship.27Reconciliation is a collective practice, which encompasses a breadth ofapproaches;28itcanbeaone‐timeeventoraseriesofongoingexperiencesoverthelifespan of an individual as well as across generations. Critical self‐evaluation,accepting that awrongwasdone, is often seen as the first essential step. Recentresearchidentifiestwomodesofreconciliation:

Therestorativedimensionseekstorestoreandhealapre‐existing‘we’,byclosingupatemporarybreach,whilethetransformativedimensionseekstocreateanew‘we’,whichrequiresopeningupnewpossibilitiesthatdidnotexistbefore.29

Inourcontext,itisnotaquestionofreconcilingvictimsandperpetratorsbutratherrestoring the relationship between members of the community and publicinstitutions,particularlypolicingagencies.

(c) ‘Wicked’Problems:TheChallengeofComplexSocialProblemsThe Missing Women Commission of Inquiry’s mandate relates to very complexpolicy problems. Borrowing the terminology used to describe other currentcomplexissues,thesepolicyproblemsmightbecalled‘wicked’. Theterm‘wicked’inthiscontextisusednotinthesenseofevil,butratherasanissuehighlyresistanttoresolution.30TheAustralianPublicServiceCommissionhaspublishedaveryhelpfuldiscussionpaper entitled Tackling Wicked Problems: A Public Policy Perspective31 [“APS27AHPFinalReportVol.II,atp.251.28AshokMathur,JonathanDewarandMikeDeGagne,eds.,CultivatingCanada:Reconciliationthroughthelensofculturaldiversity(AboriginalHealingFoundationResearchSeries,2011).29WillKymlickaandBashirBashir,eds.,ThePoliticsofReconciliationinMulticulturalSocieties(Oxford:OxfordUniversityPress,2008)“Introduction”atp.19.30TheterminologywasoriginallyproposedbyH.W.J.RittelandM.M.Webber,bothurbanplannersattheUniversityofCalifornia,Berkeley,USAin1973.See:H.W.J.RittelandM.M.Webber,“DilemmasinaGeneralTheoryofPlanning”,4PolicySciences,(1973),pp.155–69.31AustralianPublicServiceCommission,TacklingWickedProblems:APublicPolicyPerspective(CommonwealthofAustralia,2007).[“APSReport”]

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Report”].SomeofthekeypointsraisedinthatpublicationaresummarizedheretofacilitatediscussiononpotentialapproachestoimplementingthereformsneededtoaddressissuesrelatedtomissingandmurderedwomeninBritishColumbia.The APS Report points out that successfully tacklingwicked problems requires abroad recognition and understanding that there are no quick fixes and simplesolutions.Theseproblemssharearangeofcharacteristics:

Theyaredifficulttoclearlydefine:thenatureandextentoftheproblemdependsonwhoisaskedbecausedifferentstakeholdershavedifferentviewsofwhattheproblemis.

Theyareofteninterdependentorco‐existwithotherproblemsandtherearemultiplecausalfactors.

Theyusuallyhavenoclearsolution. Theygobeyondthecapacityofanyoneorganizationtounderstandand

respondto. Thereisoftendisagreementaboutthecausesoftheproblemsandthebest

waytotacklethem. Theytendtobe“sociallycomplex”ratherthan“technicallycomplex”. Usually,partofthesolutiontowickedproblemsinvolveschangingthe

behaviourofgroupsofcitizensorallcitizens. Somewickedproblemsarecharacterizedbychronicpolicyfailureand

thereforeappearintractable. Attemptstoaddresswickedproblemsoftenleadtounforeseen

consequences.Alloftheseposechallengestotraditionalapproachestopolicy‐makingandprogramimplementation.Keyingredientsinsolvingoratleastmanagingwickedproblemsinclude:

Holisticratherthanpartialorlinearthinking–theneedtograspthebigpictureincludingtheinterrelationshipsbetweentherangeofcausalfactorsandpolicyobjectives;

Innovativeandflexibleapproaches; Successfullyworkingacrossbothinternalandexternalorganizational

boundaries; Engagingcitizensandstakeholdersinpolicymakingandimplementation; Aprinciple‐basedratherthanarule‐basedapproach; Iterativeprocessesinvolvingcontinuouslearning,adaptationand

improvement;and Developinginnovative,comprehensivestrategiesorsolutionsthatcanbe

modifiedinthelightofexperienceandon‐the‐groundfeedback.

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Wicked problems require governmental and non‐governmental agencies to worktogether innewwaysand throughnovelprocesses. This shiftmustbe facilitatedthrough:

Supportivestructuresandprocesses; Asupportivecultureandskillsbase; Facilitativeinformationmanagementandinfrastructure; Appropriatebudgetandaccountabilityframeworks;and Ongoingforumsofexchange.

Important steps to facilitate working across organizational boundaries includeinter‐organizationmappingonagivenissue,strategicreviews,andcreatingsharedunderstandingofproblemacrossorganizations.Communityengagementiskey:

Becausewickedproblemsareoftenimperfectlyunderstooditisimportantthattheyarewidelydiscussedbyallrelevantstakeholdersinordertoensureafullunderstandingoftheircomplexity.Ifaresolutionofawickedissuerequireschangesinthewaypeoplebehave,thesechangescannotreadilybeimposedonpeople.Behavioursaremoreconducivetochangeifissuesarewidelyunderstood,discussedandownedbythepeoplewhosebehaviourisbeingtargetedforchange.

TheAPSReportpointsoutthatwiththesocialcomplexitythataccompaniesnearlyallwickedproblems,“alackofunderstandingoftheproblemcanresultindifferentstakeholdersbeingcertainthattheirversionoftheproblemiscorrect”.32Itcanbeextremely difficult tomake anyheadway on an acceptable solution to thewickedproblemifstakeholderscannotagreeonwhat theproblemis. Achievingasharedunderstandingofthedimensionsoftheproblemanddifferentperspectivesamongexternal stakeholders who can contribute to a full understanding andcomprehensiveresponsetotheissueiscrucialbecause:

...theHolyGrailofeffectivecollaboration—isincreatingsharedunderstandingabouttheproblem,andsharedcommitmenttothepossiblesolutions.Sharedunderstandingdoesnotmeanwenecessarilyagreeontheproblem...Sharedunderstandingmeansthatthestakeholdersunderstandeachother’spositionswellenoughtohaveintelligentdialogueaboutthedifferentinterpretationsoftheproblem,andtoexercisecollectiveintelligenceabouthowtosolveit.Becauseofsocialcomplexity,solvingawickedproblemisfundamentallya

32APSReportatp.27.

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socialprocess.Havingafewbrilliantpeopleorthelatestprojectmanagementtechnologyisnolongersufficient.33

Canada’s Institute on Governance has developed a framework to facilitate activeparticipationorcitizenengagementthatmayberelevanttothesolutionofwickedproblems. The principles of the framework include ‘shared agenda‐setting for allparticipants; a relaxed time‐frame for deliberation; an emphasis on value‐sharingratherthandebate,andconsultativepracticesbasedoninclusiveness,courtesyandrespect’.34

(d) Organizational Change Management 

Changemanagemententailsthoughtfulplanningandsensitiveimplementationandaboveallconsultationwith,andinvolvementof,thepeopleaffectedbythechanges.Communicationisoneofthekeystochangemanagement,inparticularenablingorfacilitating involvement from all people involved as early, openly and fully aspossible.There are many different approaches to change management. These are oftendrawntogetherinsetsofprinciplesorguidelinestobeemployedbyindividualsandentitiesresponsiblefor implementingreforms. Threeapproachesaresummarizedhere for discussion purposes. It should be noted that these approaches weredevelopedinacorporatebusinesscontext,sothelanguageandtheframeworkmaynotbealwaysdirectlytransferabletotherealmofgovernmentsocialplanningandcivilsociety;however,theinsightsintermsofmarshalingchangestoorganizationalbehaviourremainvaluable.

JohnP. Kotter, aHarvardBusiness School professor has developed an eight‐stagemodel for understanding andmanaging change built on a key principle inwhichpeoplecan“see,feelandthenchange”.35Kotter'smodelinvolveseight‐steps:

1. Increaseurgency‐inspirepeopletomove,makeobjectivesrealandrelevant.

2. Buildtheguidingteam‐gettherightpeopleinplacewiththerightemotionalcommitment,andtherightmixofskillsandlevels.

33J.Conklin,DialogueMapping:BuildingSharedUnderstandingofWickedProblems,WestSussex:JohnWiley&Sons,2008),atp.29.CitedinAPSReport,supra,atp.27.34InstituteonGovernance,AVoiceforAll:EngagingCanadiansforChange(ReportoftheConferenceonCitizenEngagement,Ottawa,27–281998),atp.25.35JohnP.Kotter,LeadingChange(1995).

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3. Getthevisionright‐gettheteamtoestablishasimplevisionandstrategyandfocusonemotionalandcreativeaspectsnecessarytodriveserviceandefficiency.

4. Communicateforbuy‐in‐involveasmanypeopleaspossible,communicatetheessentials,simply,andappealandrespondtopeople'sneeds.De‐cluttercommunications‐maketechnologyworkforyouratherthanagainstyou.

5. Empoweraction‐removeobstacles,enableconstructivefeedbackandlotsofsupportfromleaders,andrewardandrecognizeprogressandachievements.

6. Createshort‐termwins‐setaimsthatareeasytoachieve,inbite‐sizechunks,andmanageablenumbersofinitiatives.Finishcurrentstagesbeforestartingnewones.

7. Don'tletup‐fosterandencouragedeterminationandpersistenceandongoingchange,encourageongoingprogressreporting,andhighlightachievedandfuturemilestones.

8. Makechangestick‐reinforcethevalueofsuccessfulchangeviarecruitment,promotion,andnewchangeleaders.Weavechangeintoculture.36

Asecondsetofprinciplesofchangemanagementisfocusedonachievinglongtermstructural transformation, seen to have four characteristics: scale (the changeaffectsallormostoftheorganization),magnitude(itinvolvessignificantalterationsof the status quo), duration (it lasts for months, if not years), and strategicimportance.37 The following ten principles are designed to provide a systematic,comprehensiveframeworkforchange:

1. Addressthe“humanside”systematically.Anysignificanttransformationcreates“peopleissues.”Aformalapproachformanagingchange—beginningwiththeleadershipteamandthenengagingkeystakeholdersandleaders—shouldbedevelopedearly,andadaptedoftenaschangemovesthroughtheorganization.

2. Startatthetop.Becausechangeisinherentlyunsettlingforpeopleatalllevelsofanorganization,whenitisonthehorizon,alleyeswillturntotheCEOandtheleadershipteamforstrength,support,anddirection.Theleadersthemselvesmustembracethenewapproachesfirst,bothtochallengeandtomotivatetherestoftheinstitution.Theymustspeakwithonevoiceandmodelthedesiredbehaviors.

3. Involveeverylayer.Astransformationprogramsprogressfromdefiningstrategyandsettingtargetstodesignandimplementation,theyaffect

36Kotter'seight‐stepmodelisexplainedmorefullyonhiswebsite:www.kotterinternational.com.3710PrinciplesofChangeManagement(SanFrancisco:ResilienceReport,2004).

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differentlevelsoftheorganization.Changeeffortsmustincludeplansforidentifyingleadersthroughoutthecompanyandpushingresponsibilityfordesignandimplementationdown,sothatchange“cascades”throughtheorganization.Ateachlayeroftheorganization,theleaderswhoareidentifiedandtrainedmustbealignedtothecompany’svision,equippedtoexecutetheirspecificmission,andmotivatedtomakechangehappen.

4. Maketheformalcase.Individualsareinherentlyrationalandwillquestiontowhatextentchangeisneeded,whetherthecompanyisheadedintherightdirection,andwhethertheywanttocommitpersonallytomakingchangehappen.Theywilllooktotheleadershipforanswers.Thearticulationofaformalcaseforchangeandthecreationofawrittenvisionstatementareinvaluableopportunitiestocreateorcompelleadership‐teamalignment.

5. Createownership.Leadersoflargechangeprogramsmustover‐performduringthetransformationandbethezealotswhocreateacriticalmassamongtheworkforceinfavorofchange.Thisrequiresmorethanmerebuy‐inorpassiveagreementthatthedirectionofchangeisacceptable.Itdemandsownershipbyleaderswillingtoacceptresponsibilityformakingchangehappeninalloftheareastheyinfluenceorcontrol.Ownershipisoftenbestcreatedbyinvolvingpeopleinidentifyingproblemsandcraftingsolutions.Itisreinforcedbyincentivesandrewards.Thesecanbetangible(forexample,financialcompensation)orpsychological(forexample,camaraderieandasenseofshareddestiny).

6. Communicatethemessage.Toooften,changeleadersmakethemistakeofbelievingthatothersunderstandtheissues,feeltheneedtochange,andseethenewdirectionasclearlyastheydo.Thebestchangeprogramsreinforcecoremessagesthroughregular,timelyadvicethatisbothinspirationalandpracticable.Communicationsflowinfromthebottomandoutfromthetop,andaretargetedtoprovideemployeestherightinformationattherighttimeandtosolicittheirinputandfeedback.Oftenthiswillrequireover‐communicationthroughmultiple,redundantchannels.

7. Assesstheculturallandscape.Successfulchangeprogramspickupspeedandintensityastheycascadedown,makingitcriticallyimportantthatleadersunderstandandaccountforcultureandbehaviorsateachleveloftheorganization.Companiesoftenmakethemistakeofassessingcultureeithertoolateornotatall.Thoroughculturaldiagnosticscanassessorganizationalreadinesstochange,bringmajorproblemstothesurface,identifyconflicts,anddefinefactorsthatcanrecognizeandinfluencesourcesofleadershipandresistance.Thesediagnosticsidentifythecorevalues,beliefs,behaviors,andperceptionsthatmustbetakenintoaccountforsuccessfulchangetooccur.Theyserveasthecommonbaselinefordesigningessentialchangeelements,suchasthenewcorporatevision,andbuildingtheinfrastructureandpro‐gramsneededtodrivechange.

8. Addresscultureexplicitly.Oncethecultureisunderstood,itshouldbeaddressedasthoroughlyasanyotherareainachangeprogram.Leadersshouldbeexplicitaboutthecultureandunderlyingbehaviorsthatwillbestsupportthenewwayofdoingbusiness,andfindopportunitiestomodeland

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rewardthosebehaviors.Thisrequiresdevelopingabaseline,defininganexplicitend‐stateordesiredculture,anddevisingdetailedplanstomakethetransition.

9. Preparefortheunexpected.Nochangeprogramgoescompletelyaccordingtoplan.Peoplereactinunexpectedways;areasofanticipatedresistancefallaway;andtheexternalenvironmentshifts.Effectivelymanagingchangerequirescontinualreassessmentofitsimpactandtheorganization’swillingnessandabilitytoadoptthenextwaveoftransformation.Fedbyrealdatafromthefieldandsupportedbyinformationandsoliddecision‐makingprocesses,changeleaderscanthenmaketheadjustmentsnecessarytomaintainmomentumanddriveresults.

10. Speaktotheindividual.Changeisbothaninstitutionaljourneyandaverypersonalone.Peoplespendmanyhourseachweekatwork;manythinkoftheircolleaguesasasecondfamily.Individuals(orteamsofindividuals)needtoknowhowtheirworkwillchange,whatisexpectedofthemduringandafterthechangeprogram,howtheywillbemeasured,andwhatsuccessorfailurewillmeanforthemandthosearoundthem.Teamleadersshouldbeashonestandexplicitaspossible.Peoplewillreacttowhattheyseeandheararoundthem,andneedtobeinvolvedinthechangeprocess.Highlyvisiblerewards,suchaspro‐motion,recognition,andbonuses,shouldbeprovidedasdramaticreinforcementforembracingchange.Sanctionorremovalofpeoplestandinginthewayofchangewillreinforcetheinstitution’scommitment.

AthirdapproachcanbefoundinarecentBritishColumbiareportonreformoftheciviljusticeprocessentitledEffectiveandAffordableCivilJustice.Thisreporthadthefollowingtosayaboutimplementingsystem‐widechanges:

Studiesshowthatimposedproceduralchangesinlargeorganizationsareencouragedbyasmallbutsignificant“changevanguard”ofemployeeswhoaredissatisfiedwiththeoldsystemandseetheimposedchangeasanopportunitytotakeactionandhelpthereformsucceed.Thechangevanguard,confidentthatacommittedleadershipisonitsside,speaksoutinfavourofthereformsandhelpstoconvertmoreskepticalemployeestothecause.Supportfornewsystemsincreasesovertime,irrespectiveofpersonalexperience,asitbecomesclearthattheleadershipisnotabandoningthechanges.38

The report also noted that successful reform requires a coordinated effort on thepartof all stakeholders in the system. It also found that collaborativedesignandimplementation processes involving all key stakeholder groups was critical forsuccessful reform. Further, implementation plans must provide for a formal and

38ReportoftheCivilJusticeWorkingGrouptotheJusticeReviewTaskForce,EffectiveandAffordableCivilJustice(2006),atp.44(footnotesomitted).

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comprehensiveevaluationprocess. Withoutkeepingtrackofkeydata,meaningfulimprovementisimpossible:

Meaningfulevaluation,however,cannotbereconstructedaftertheevent.Itimpliesthattherearewell–thought‐outandmeasurableobjectivesandgoals,comprehensivedatacollectionbeforeandduringimplementation,andanindependentanalysisatpredefinedperiods.39

39Ibid,atp.46.

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3. QUESTIONS AND ISSUES FOR DISCUSSION The third section sets out a number of questions designed to facilitate furtherdiscussionand togeneraterecommendations forchange. TheCommission invitesyour responses tooneormoreof thesequestions inyourwrittensubmissions, inadditiontofeedbackonanyelementofthisdiscussionpaper.Q1: Are restorative justice measures required to improve the relationship

between police and community members in communities that have beenparticularlyaffected,suchastheDowntownEastsideoralongtheHighwayofTears?Ifso,whattypesofmeasurescouldbedevelopedandimplemented?

Q2: Dostepsneedtobetakenforfurtherpublicacknowledgmentofthetragedyofmissingandmurderedwomen?Ifso,whattypesofsteps?

Q3: ShouldprogressinmeetingtherecommendationssetoutintheCommission

report be measured and evaluated? If so, what steps should be taken tomeasureandevaluatechange?

Q4: What typesofbestpractices for initiating, sustainingandmanagingchange

processesshouldbeintegratedintotheCommissionreport?