FAAE Committee Report

The dynamic complexity and diversity of the Muslim world are such that a report of this nature necessarily carries several caveats. The Committee’s examination of Canada’s relations refers to “countries of the Muslim world” because that is a widely used and understood shorthand for describing the broad geopolitical expanse of the world’s approximately 1.4 billion Muslims. It includes countries such as India; not a “Muslim country,” but with a minority Muslim population that is several times larger than the largest Arab-Muslim country in the Middle East. It also includes the growing Muslim diasporas in countries of the West, including Canada.

As the report’s preface underlines, the Committee’s study is exploratory and makes no claims to comprehensive coverage or definitive prescriptions. For example, while the Committee held meetings in both Asia, home to the majority of the world’s Muslims, as well as the Middle East and North Africa, our inquiry did not delve into the role of Islam in Sub-Saharan Africa. We did not discuss theological matters beyond their potential impact on international politics and foreign policy. In the regions and countries visited, our observations are also necessarily limited; moreover, these will need to be viewed and reviewed in the light of evolving circumstances.

Given the range and variability of the factors involved, the Committee’s first recommendations to the Government of Canada are to ensure that, in order to give the Muslim world the attention it deserves, Canadian policymakers have the appropriate capacities both to analyze ongoing relevant developments and to act effectively in the best interests of Canadians.

Beyond the specific regional and country situations addressed in the report, a number of more general findings emerged from the Committee’s study and reflections as a whole. The following summary points highlight those overall conclusions. In the Committee’s view, these are key elements to be taken into account in the development of a constructive, forward-looking Canadian foreign policy capable of strengthening relations with the countries of the Muslim world.

Recognizing Islam’s complex world of differences

While all Muslims belong to a faith community of followers of Islam (the “ummah”) that is global in extent, it is important to avoid the dangers of stereotyping, over-generalizations and over-simplifications that will mislead policy. The report observes that the world of Islam is anything but monolithic. On the contrary, it is extremely heterogeneous and sometimes marked by sharp internal divisions between different religious branches, schools of thought, legal interpretations, and socio-cultural practices. Even the limited selection of countries that the Committee visited exhibited enormous differences in comparison with each other; there can also be major differences in approaches to Islam within these countries. That does not mean there are no common points of reference or objectives to be pursued across regions and countries. Promoting pluralistic forms of democracy that respect human rights values is one such shared objective. It does mean that foreign policy must be sensitive to highly varied and changing circumstances or risk being inappropriate, ineffective or both. In sum, Canada’s relations with the Muslim world cannot follow a static, “one-size-fits-all” blueprint. They must be adaptable to new information and tailored to the specific requirements of diverse, continuously evolving country situations.

Advancing knowledge of Islam and understanding its political impacts

While Muslims are a growing minority in most Western countries, including Canada, these countries still have a fairly low level of general knowledge about Islam and its influence around the world. Of course, a great deal of media and public attention has been given to violent political manifestations associated with Islam, especially suicide terrorism; however, this negative spotlight focuses on only one element of a much more complicated reality and may also distort that reality. Understanding Islamic influences on government and state policies, on social and economic relations, cultural norms, individual and group rights, and the like, necessarily goes far beyond the question of the extreme, violent-minority edges of Islamist activity. Beyond probing the causes of such violence, a deeper appreciation is needed of the increasing mainstream political force of Islam. The report calls for increased generation and communication of such knowledge. An important way of improving our knowledge base will be to expand opportunities to listen to, and learn from, moderate Muslim voices in Canada and abroad.

Overcoming legacies of subjugation, humiliation and fear

The report acknowledges that the burdens of both history and recent tragic events weigh heavily on many Muslim countries and communities. The borders and regimes created by imperialism, colonialism and great-power interventions have frequently not respected the rights of local peoples. At times they have contributed to protracted deadly conflicts — as notably in the cauldron of the Middle East in regard to the Arab-Israeli conflict that continues to be a prime source of grievances and tensions in relations between the Muslim world and the West. Feelings of isolation and humiliation among Muslim populations have been exacerbated by what many view as the unfair targeting of Islam for the terrorist outrages of recent years. Political issues become intertwined with those of religious identity. A profound sense of victimization arises out of a climate of fear and mistrust. Working to overcome that and to move from misunderstandings to building confidence through mutual respect — rejecting any “clash of civilizations” path — must be an important consideration in any constructive strategy for further engaging with the Muslim world.

Addressing the challenges of demography and education

The report points to the youthfulness of the populations of many Muslim countries, and to the critical role that education will play in determining the progress of Muslim societies. The large number of new jobs required to accommodate entrants into the labour forces of these countries highlights the importance of economic development and social investment if instability and declining living standards are to be avoided. Yet as the UN’s Arab Human Development Report points out in an assessment that has broader application — economic development prospects are integrally linked to addressing key societal deficits of democratic rights and freedoms, gender equality, education and knowledge. In many Muslim countries, educational challenges are not only of a secular nature; they may also involve a need to reform religious education, especially under circumstances in which religious schools (madrassas) are a primary affordable option for low-income families. Future relations may depend on the ability of Muslim-country governments to provide basic public education that promotes tolerance and the accommodation of differences. Those relations can also be enhanced through the promotion of student, academic and other educational exchanges between Canada and Muslim countries.

Closing the democratic gap

The report strongly affirms the compatibility of Islam with democracy and respect for human rights. At the same time, it frankly documents the great gulf that continues to exist between the democratic aspirations of Muslim majorities and the repressive authoritarian realities under which many Muslims live. Overall, the record is mixed. There are large Muslim populations that do enjoy democratic government; Indonesia has the world’s biggest Muslim majority, India the biggest Muslim minority — both are democracies. Significant progress is being made under Turkey’s moderately Islamist government. Yet so far only 8 of 46 Muslim-majority countries are electoral democracies. The Arab-Muslim world has been described as a “democracy-free zone” that modern waves of democratization have left behind. A chasm, not just a gap, separates ruling elites from the grassroots. Recent rigged elections in Iran have dashed hopes for reform in that country. The report argues that the policies of Canada and other Western countries must be clear and consistent in signalling support for democratic changes within a variety of Muslim contexts.

Improving human rights performance and the status of women

The report also underlines that the nature and quality of democratic change in Muslim countries must address the equality of human rights for all. It is critically important in this regard to distinguish between the teachings of Islam and traditional socio-cultural practices that may be highly discriminatory, notably towards women. Iranian human rights activist Shirin Ebadi, winner of the 2003 Nobel peace prize and the first Muslim woman to be so honoured, is among many who argue that Islam’s tenets are not in conflict with fundamental international human rights standards. Advancing the rights of women should therefore be an explicit element of Canadian policy in building relations with Muslim countries.

Protecting the rights of minorities, other vulnerable groups and individuals

Among the human rights challenges addressed in the report are those facing both Muslim minorities in non-Muslim countries and religious, ethno-cultural, and other minorities in Muslim countries, especially vulnerable minorities that have historically suffered from systemic discrimination. In a number of these countries, there are also severe restrictions on basic freedoms; in some, gross human rights violations are still commonplace. Cooperation is needed among Muslims and non-Muslims in working to entrench the rule of law and create conditions of democratic pluralism within which all individuals and groups can enjoy equal rights and equal protection of the law. Minority rights should be of explicit concern to Canada in relations with Muslim countries. Moreover, beyond individual high-profile cases of human rights abuses affecting Canadian citizens, Canadian policy should speak out forcefully in defence of human rights in the Muslim world whenever and wherever serious abuses occur.

Encouraging and supporting democratic and human rights reforms

In making a strong case for promoting democratic and human rights reforms throughout the Muslim world, the report is careful to emphasize that this is not an agenda for the export or external imposition of “our model”. The kind of encouragement and support that is required derives from a common obligation to implement internationally recognized standards of rights and should involve working as closely as possible with other governments and civil-society organizations. At the same time, Canada’s experience in accommodating multicultural differences and integrating immigrants from diverse backgrounds may be valuable to others facing democratization and human rights challenges, a point supported by American expert on Islamic democracy Noah Feldman. A considered Canadian approach to promoting democratic and human rights reforms can make a distinctive contribution when joined to the efforts of those working for such reforms within Muslim countries.

Promoting shared learning, partnership, and dialogue

The report also emphasizes that there is much to be learned from the experiences of others, including learning from mistakes and what to avoid in both Muslim and non-Muslim countries. No country has all the answers. Partnerships are therefore needed at the international level involving multilateral organizations, governments, non-governmental actors and civil-society groups. Inter-cultural and inter-faith activities that contribute to fruitful dialogues among and within civilizations should be supported.

Including Canadian Muslims and fostering wider public engagement

The internal resources of Canadian society, notably the ideas and skills of Canada’s growing Muslim communities, should be another important source of learning and building up knowledge capacities. The report observes that many Canadian Muslims want to have a larger voice in foreign policy development. Their talents could also be extremely valuable in strengthening Canada’s diplomatic capabilities to advance relations with key regions and countries of the Muslim world. In addition, it is important that the wider Canadian public become more knowledgeably engaged in issues involving Canada’s relations with the Muslim world. The report calls on the Government to encourage that participation, specifically in the process of the promised international policy review.

Strengthening Canada’s presence and diplomatic effectiveness in the Muslim world

A message repeatedly reinforced by Committee testimony both here and in other countries was that Canada should strive for a more visible and effective presence in the Muslim world. Many witnesses argued that Canada already has the advantages of being generally well perceived and well received in Muslim countries, though often not well enough known. Canada is most appreciated for its example of being a welcoming pluralistic society that is committed to multilateralism and able to take independent international stands while maintaining close ties as neighbour to the world’s greatest power. Canada was urged to play a more active, influential role in relations with Muslim countries, and to project a stronger identity. The report recommends possible measures for doing so including: increased regional/country representation as necessary; Canadian public diplomacy, cultural, educational and other knowledge-based initiatives and exchanges; and collaborative ventures with the private sector and non-governmental organizations (NGO) partners.

Enhancing Canadian foreign policy capabilities in a strategic approach to the Muslim world

Finally, the report reiterates a point emphasized by previous Committee reports: namely, that policy ideas such as the ones outlined above, however well founded and intentioned, will have little effect unless they are matched with the capacities and resources required to implement them. The report’s first recommendation that the Government adopt a forward-looking, strategic approach to relations with the Muslim world is followed up by further operational recommendations, notably to ensure adequate support for enhanced linguistic and analysis capabilities. Without such foreign policy instruments, the goals of stronger relations with countries of the Muslim world will remain more rhetorical than real. Citing European examples, the report also recommends that the Government consider establishing a mechanism within the Department of Foreign Affairs and International Trade to coordinate dialogue activities with the countries of the Muslim world.