klodawsky et al urban geography feb 2011
TRANSCRIPT
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URBAN CONTESTATION IN A FEMINIST REGISTER
Fran Klodawskyi
Department of Geography
Carleton University
Janet Siltanen
Department of Sociology and Anthropology
Carleton University
Caroline Andrew
School of Political Studies
University of Ottawa
Forthcoming in Urban Geography, Theme Issue on Urban Contestation
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ABSTRACT
Approaches to urban contestation that challenge the dichotomy between institutionalization andopposition, and understand contestation as including engagement, are explored in this article. We
set out how recent forms of feminist analysis and critical scholarship open up a conceptualterrain for such thinking and we ground our discussion with further details of City for All
Women Initiative/ Initiative: une ville pour toutes les femmes (CAWI-ITVF) which we regardas a concrete (and successful) case. CAWI-ITVFs tactics and strategies are noteworthy because
of the particular manner in which they have incorporated ideas drawn from feminist andprogressive organizing in other, including non-urban and non-Western, contexts. CAWI-ITVFs
successes are most striking in relation to women who had previously felt totally alienated from
local politics in Ottawa. The organizations rationale, strategies and tactics provide insights intothe ways in which women active in this network strategically use space to create new spatialities,and how their interactions in space are productive for creating new political subjects.
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PART 1: INTRODUCTION
It is January 26, 2005, at City Hall in Ottawa. It is budget time and all day, city
councillors - seated in a semi-circle at the front of a large and imposing room - have been
listening to public delegations. The early evening has been taken up with a well organized group
of presenters both female and male, but all mature white and relatively well-off adults
arguing to cut taxes and services, and raise public transit fares.
Then, from the visitors area where individuals sit in rows (at the back of the room)
waiting for their turn to speak, up gets a group of twelve women of every colour, age, size, shape
and dress. The contrast could not have been more striking. All are wearing peach-coloured
scarves as a symbol of their solidarity amidst differences. They begin with a song:
Weve come to talk
To share our views
Cause when we vote, well think of you,
We are women across this city
We represent communities
Please take the time
To see our views
We are the city that cares, includes
Please bring alive the 20/20
In our budget Two thousand Five
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Nous sommes les femmes
De toute la ville
Well be happy if you will
20/20 will work just fine
In our budget Two thousand Five.
The song was followed by two powerful, hard-hitting presentations: one, on the
importance of grants to community groups, and the other, on the significance of good, accessible
public transportation for those living on low and fixed incomes. The presenters were eloquent
about the destructive impacts of isolation and marginalization when a cost-recovery orientation
to public services such as recreation and public transportation, made access impossible. Their
references to 20/20, the 2005 Official Plan that was developed on the basis of widespread
public consultation but subsequently undermined due to economic pressures, indicated that this
was an informed as well as an assertive public and its bilingual elements acknowledged Ottawas
many French speaking residents.
The impact of their presentation was palpable. The song had woken those who were
dozing, worried those in charge of procedures, and energized still others. The women had
achieved their first goal of making sure that councillors, bureaucrats and other presenters were
paying close attention. These women were all graduates of training organized by the City for
All Women Initiative/ Initiative: une ville pour toutes les femmes (CAWI-ITVF), on how to
influence decision-making at City Hall.
We begin our article with a description of this event in order to signal our interest in
approaches to urban contestation that challenge the dichotomy between institutionalization and
opposition, and that work with an understanding of contestation that includes political
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engagement. CAWI-ITVFs tactics and strategies are noteworthy because of the particular
manner in which their members have incorporated ideas drawn from feminist and progressive
organizing in other, including non-urban and non-Western, contexts. CAWI-ITVFs successes
are most striking in relation to women who had previously felt totally alienated from local
politics in Ottawa. The organization uses space strategically to create new understandings of how
politics works on the ground (new spatialities) and following from this, how their members
interactions in spaces such as City Hall, community centres and neighbourhoods are productive
in creating new political subjects (new subjectivities). Contestation in what we refer to as a
feminist register signals the intriguing observation that while CAWI does not present itself as
an explicitly feminist organization, many of its characteristics echo certain feminist perspectives
and desires. The language of register refers to a musical tone that is distinctive but not easily
captured in language, similar to the song referred to in the introduction. This song is not only a
cleaver tactic but also something less easily articulated, having to do with a way of performing
feminism that is embodied, multi-faceted and difficult to categorize.
The significance of urban contestation as engagement will be explored in this article with
the help of insights drawn from strands of feminist, critical geography, and social movement
scholarship. We begin by setting out how our investigations and analysis are related to other
theoretical discussions of interest to feminist urban geographers. In Part 2, we situate ourselves
in relation to the subject and arguments of this paper, as well as summarizing CAWI-ITVFs
genesis and current activities. This theoretical and contextual information forms the backdrop
that underpins the presentation and analysis of our case study. CAWI-ITVFs story is usefully set
within a broader political economy that has seen significant labour market restructuring over the
past two decades, and in the relative power and significance of different levels of government in
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Canada. However, CAWI-ITVFs strategies and tactics cannot be explained solely or even
primarily through these macro-scale and structural drivers. They also have to do with the manner
in which circumstances, ideas, resources and relationships have come together in space and time
and out of which, new spatialities and subjectivities have emerged (Staeheli & Kofman 2004;
Fincher 2004; Martin 2004). We explore these latter arguments in Part 4.
PART 2: THEORETICAL OPENINGS FOR UNDERSTANDING NEW FORMS OF URBAN
CONTESTATION
This article contributes to ongoing efforts on the part of feminist political
geographers and other critical scholars to explore and learn from diverse, emplaced actors who
are being political, yet whose activities typically are unacknowledged and/or denigrated
(Staeheli et al, 2004; Nagar et. al., 2002). We see ourselves as contributing to scholarship that is
challenging heretofore unexamined categorizations and dualisms, that highlights the value of
situated knowledge inclusive of multiple perspectives, and that is explicit about a commitment to
progressive social change (Kofman and Peake 1990; Staeheli and Kofman, 2004, p.1). Our
particular interest aligns closely with Wekerles explorations of: how urban citizens have
mobilized movements to meet the needs of everyday life in response to neoliberal restructuring
and structural adjustment, how they have created spaces within the local state for feminist
policies, and how they have forged transnational networks to link movements in a global civil
society (2004, p. 245). Within this area of scholarship, we have a particular interest in women
who are typically regarded as other in relation to urban politics, such as newcomers, those who
are indigenous, poor and/or those who are differently abled. These women are central to CAWI-
ITVF and to our research. Here we look to what scholarship offers by way of insights about
when and how such women engage in and are recognized as political actors. Three areas of
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literature have been particularly insightful: prefigurative politics; the politics of becoming in
place; and actually existing urban neoliberalisms.
(a) Prefigurative Politics
An interest in prefigurative forms of political activity was one legacy of 1980s feminism.
With connections among feminisms and between feminist and left politics in a state of tension,
Sheila Rowbotham, Lynne Segal and Hilary Wainwright (1979) articulated a need for a new
approach to political activism that acknowledged diverse oppressions, and practiced a politics
that gave as much attention to the processes of political activism as to its ends. In contrast to
hierarchical and prescriptive forms of mass political organization, and platforms that promised
desired changes only after proper political alignments, these authors argued for an enabling
approach to difference, and stressed the power of incorporating elements of desired futures into
evolving presents. This was an intervention that would continue to reverberate, inspiring feminist
and other activists for social justice to reconsider and reconfigure the understanding, analysis and
practices of political activism. Their insights have raised important questions about the how and
what of feminist research. During the 1980s and 1990s, their arguments, together with many
other interventions that were informed by Foucauldian, critical race and post-colonial analysis
(Foucault xxxx; Spivak xxxx), profoundly destabilized assumptions about the significance of ,
and approaches to studying everyday resistance at the local level (hooks xxxx; Escobar xxxx).
Since that time, critically engaging the concept of agency among individuals with apparently
little power has been the subject of considerable, on-going debate and reflection (Gibson-
Graham 2006; Isin and Ustundag 2008; Pain 2009). In parallel with these discussions,
explorations of appropriate methodologies to investigate these matters have also been in play.
There is a growing literature that questions whether or not feminist and other critical social
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science methodologies, such as participatory and action research, provide pathways to
investigation that avoid the disciplining and often exploitative tendencies of more mainstream
approaches to knowing (Kesby 2005; Kindon et al xxxx; Naples xxxx).
(2) The Politics of Becoming in Place
Both Gibson-Grahams (2006)A Postcapitalist Politics, and Harcourt and
Escobars Women and the Politics of Place (2005) offer readings of place-based globalism that
we see as salutary extensions of these earlier efforts. For Gibson-Graham, an evolving post-
structural critique of (capitalist) economic reification has translated into action research that
includes the self-cultivation of subjects (including ourselves) who can desire and enact other
economies in multiple sites (2006, p. xxiii).Their political ambition has been to release and
cultivate the potential inherent in diversity and in already-existing alternative practices to
disorder, dislocate, dis-identify and unfix hegemonic understandings and projects. This ambition
applies also to the creation of new political subjects. They identify a counter hegemonic politics
as involving dis-identification with the subject positions offered by a hegemonic discourse and
identification with alternative and politically enabling positions (Gibson-Graham, 2006, p. 77).
Links between dynamics of place and the global are also central to their thinking. They are
considered to be coproduced, and this coproduction is regarded as a strong resource for political
possibility. They offer a vision of global transformation through the accretion and interaction of
small changes in place (Gibson-Graham, 2006, p. 196). As they note, the global reach of second
wave feminist politics was due to the ubiquity of place-based feminist activism, and networking
across places. Harcourt and Escobar (2005) see Gibson-Grahams analysis and ongoing activities
as very much in line with their own ideas about place based globalism: [t]he sense of
globality is not [a] search for universal validity or an all-embracing global reality but one
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that seeks to preserve heterogeneity and diversity, even as, and precisely through, new kinds of
alliances and networking that we refer to as self-organizing, decentralized and nonhierarchial
meshworking. In short, these [women and the politics of place] movements want to be
practicing, already, the kinds of worlds they would like to bring into being (2005, p 14). These
authors emphasize the value of a politics of the coproduction of subjects and places. A politics
of becoming in place (Gibson-Graham, 2005, p. 131). In this formulation there is a recognition
that women are already everywhere engaged in constructing and revitalizing places in response
to the exigencies and possibilities of their everyday lives (Gibson-Graham, 2005, p. 132).
Placed-based activism is the cornerstone of a Women and the Politics of Place (Harcourt and
Escobar 2005) framework Place, like the subject, is the site and spur of becoming, the opening
for politics (Gibson-Graham, 2005, p. 132). We see in these arguments, a strong justification for
further investigating how women such as those involved in CAWI become engaged in place-
based politics in the first place. What these sets of authors do not bring into the analysis to date,
however, is a concerted focus on embodied urban politics, despite (or perhaps because of?) the
increasingly neoliberally-framed, and growing, economic and political significance of cities
throughout the world.
(c)Actually Existing Urban Neoliberalisms
Since the 1990s, various scholars have documented the harsh disciplining tendencies that
government retrenchment and restructuring have had on equality seeking groups in cities
(Boudreau et al, 2009; Cohen and Pulkingham, 2009; Shragge and Fontin, 2000). This
scholarship has noted the ways that community organizing principles were often subverted to
conform to pressures to keep down costs and reduce expectations of what governments should
provide for citizens. For example, authors such as deFilippis, Fisher and Shragge (2006), and
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Peck (2001) have raised important questions about the manner in which community
organizations have sometimes ended up implementing governments fiscal (and social) goals
rather than the objectives of the organizations. Frequently, these disciplining tendencies have
been brought together and described under the umbrella term neoliberalism, a term that has
become more and more dominant as both explanation and analytic frame (Larner 2003).
However, a consensus is emerging that greater nuance is required in the analysis of
neoliberalizing effects on urban politics and policies, for four sets of reasons that are relevant to
our analysis.
First, the operation of neoliberalizing tendencies needs to be contextualized within a
broader appreciation of diverse factors and forces operating to shape the direction and character
of urban politics more generally. In other words, neoliberalization is increasingly recognized as
not the only phenomenon in operation. This point has been made recently by Jessop et al (2008)
who advocate for a more polymorphous characterization of factors at work within urban
discourse and practice, including attention to the diverse spatialities of politics as located in and
interacting with territories, places, scales and networks. They and other commentators encourage
the further exploration of concrete-complex examples in order to further refine their arguments
(Katz 2004; Mayer 2008). Second, the need to attend to how specificities of time, space and
place shape the interpretations and enactments of neoliberalization is increasingly emphasized.
As several commentators in Leitner, Peck, Sheppard (2007) stress, these need to be understood
as particular expressions conditioned by the history and complexity of local conditions.
Neoliberalization may have general traits, but these are specified, interpreted and realized in the
unique contexts of localities. Larner, LeHeron and Lewis (2007) go further in asserting that
neoliberalism is more usefully conceived of as a series of somewhat discrete and dynamic
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projects and that it is only through both interpretation and interpenetration that these political
projects have begun to take on sameness rather than difference, alignment rather than
divergence (p.227).Third, there is growing interest in examining social movements as being
relationally intertwined with what is understood as the state (Goldstone 2003). As McAdam
notes,the results of protest are not simply related to the scale or intensity of mobilization and
protest activity. Interactions with political leaders and agendas, as well as shifting state, public
and elite responses, can either produce dramatic changes from relatively modest mobilization or
frustrate even widespread popular protest activities (2003, p. xv).In this view, the field within
which social transformations as an outcome of politics might be imagined, is more complex but
also more multi-faceted than more dichotomous presentations might suggest. Through the lens of
social movements, McAdam hints at what Larner et al assert. Namely, that it is only through an
appreciation of the implications of such a framing [of neoliberalism as ongoing and evolving
political projects,] does it become possible to open up possibilities for multiple political
interventions (p. 277). In other words, only by gaining more knowledge about the discourses
and actions that promote neoliberal framings is it possible to identify political strategies that
encourage qualitatively different outcomes.
Lastly, while explorations about democratic governance and participation in neoliberal
times continue to proliferate, North American and European scholarship has devoted little
attention to ideas about the recruitment and engagement of new political actors. In contrast to
Latin American scholarship on the subject of engagement, there is a gap between the growing
interest in deliberative and participatory tools of governance, and a lack of focus on the
circumstances that influence political take up by currently disengaged residents. The powerful
arguments put forward by Paulo Friere (1972) - that learning to critically conceptualize their
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society is a necessary precondition of peoples willingness to engage in political activities - have
been neglected in recent urban and Western literature on deliberation and participation
(Beaumont and Nichols 2008).
Insights from these four areas of literature have reinforced our sense that there is
something important to learn from an extended case analysis of CAWI-ITVF. As will be
discussed below, our privileged position with regard to this organization has provided an entry
point into research that we hope will contribute new insights about the kinds of organizations
that Hamel, Lustiger-Thaler, Mayer (2000, p. 1) refer to as transfunctional urban social
movements. Like CAWI-ITVF, these movements:
are not fearful of institutionalization. In many cases they seek it out. They arecorporatist and increasingly find expression in partnerships of all stripes and
countenances, if the strategic environment is so predisposed. The latter, however, do notacct for all their functions. They have another embedded characteristic: they are key to
the social construction of conflict within the city Their transfunctionality bringstogether service roles and conflict roles, as they pre-score the scripts and narratives of
local politics (Hamel, Lustiger-Thaler, Mayer 2000, p. 1).
Although CAWI-ITVF is not a service organization in the narrow sense of the term, it does
provide vital educational opportunities and discursive spaces for exploring how urban politics in
Ottawa might be practiced in line with its participants goals and hopes. By also being a playerat
City Hall, the organizations members see the possibility of their own future engagement within
mainstream decision-making, albeit on a terrain that they have helped define.
PART 3: LOCATING OURSELVES, LOCATING CAWI
Research about and with CAWI-ITVF is a relatively recent development in a much
longer and multi-faceted history of our involvement with this organization. All of the authors
have long been engaged scholars at the municipal level in the sense of having participated in a
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variety of endeavours related to local area social issues. For two of us Andrew and
Klodawsky involvement in issues relating to womens public safety concerns, both locally and
internationally, has been of long-standing import. CAWI-IVTFs inception in 2002 is the most
recent phase of multiple initiatives since 1989 to engender Ottawas City Hall, in collaboration
with local politicians committed to encouraging the greater engagement of women in local
politics. Our growing excitement about the emerging ethos (register?) of both CAWI and
another organization in which we have both been involved Women and Cities International
(WICI) spurred on the crafting of a research project structured around the assertion that there
were theoretical insights to be gained by approaching the two organizations as paradigmatic
examples worthy of being examined as extended case studies (Flyvbjerg 2001). Specifically,
these theoretical goals were to explore: the significance of feminist community organizations
for increasing the involvement of minority women in political activities, at the local level and
beyond, the strategic significance of scale [and] attention to [how] the everyday personal and
organizational experiences of feminist organizing can shed light on ways to challenge inequality
(Klodawsky 2007). The focus of this article is on the latter element. Given Andrew and
Klodawskys positionalities vis--vis CAWI, it made theoretical and particularly methodological
sense to invite a third scholar Siltanen to participate in this endeavour. Her more distanced
relationship with CAWI combined with her own experiences as an engaged scholar and her
methodological acumen made her the ideal third for our team. After receiving enthusiastic
support from members of CAWI-ITVF and WICI, we applied for and were successful in
receiving funds from Canadas Social Sciences and Humanities Research Council in 2008 for a
three-year programme of study. Our investigative methodologies have included a range of
qualitative approaches, including: in-depth interviews, reflexive conversations among the
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researchers, document analysis, and participant and non-participant observation. In the
discussion that follows, we begin by presenting our understanding of CAWI-ITVFs genesis and
evolution as best situated within the context of two somewhat related but distinctive processes at
play at the beginning of the 21st
century in Canada: on the one hand, new economic, political and
social pressures associated with globalization and felt especially in Canadian cities, and on the
other hand, the manner in which Canadian immigration policy has intersected with these political
economic changes.
(a) Canadas changing political economy
Since the early 1990s, Canadian cities have been the places where employment
opportunities are most likely to be found, but they have also been sites where the growing gap
between rich and poor has been the most clearly visible. Urban residents have faced harsh market
logics in numerous aspects of their lives. Although cities have also been acknowledged as the
spheres of growing ethno-cultural diversity and complexity, their capacities to develop the means
to address competing demands and diverse sets of needs and supports have been extremely
limited. Senior governments reluctance to cede adequate resources to large municipalities has
been a major contributor to this dilemma, despite growing evidence that the negative impacts of
resource/demand mismatches are mostly likely to occur within these places and particularly
among certain marginalized populations (Boudreau et al., 2009). In part, this mismatch has
occurred due to the historical legacy of how local governments have been understood: as minor
players whose mandates have been most particularly to provide hard infrastructure and other
expenditures destined to support private development (Tindal and Tindal, 2004).
In Ottawa, these experiences have been coupled with the citys unique situation as both a
mid-sized municipality and the seat of the federal government. Early suspicion of the
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motivations for federal government involvement in local affairs have continued to the present
day. Local councillors have recognized the federal governments significance to the local
economy but they also have retained a scepticism about federal motives in the region and have
therefore been enthusiastic boosters of high-tech development in an effort to reduce the citys
economic dependence on the federal government. One outcome has been a pre-occupation on the
part of some elected officials (both mayors and councillors) to ensure that taxes are kept as low
as possible. Unlike some other Ontario cities that have contested these logics and rationalized the
need for increased tax rates, Ottawa has been led by politicians whose primary concerns have
been fiscal responsibility
ii
. Some politicians and, even more so, staff see CAWI-ITVFs
innovative strategies and tactics as a means of incorporating innovative approaches to promote
diversity into a bureaucracy and political culture preoccupied with fiscal stringency.
But City Halls interest in engaging with CAWI-ITVF has not been solely or even
primarily driven by economic pressures and an orientation of fiscal conservatism. The City of
Ottawa also has had a tradition of progressive Catholic social action that values caring for the
less fortunate and caring as a part of the social responsibility of living in a community. For some
local politicians and residents, this tradition remains as an important characteristic: caring for the
unfortunate is often seen as the correct way to act, rather than part of a coherent policy stemming
from an analysis of root causes. This influences the way in which the City regards CAWI-ITVF:
an anomaly in terms of the classical areas of municipal activity not seen to include promoting
gender equality; a responsibility of the federal government vis--vis immigration policy, and the
province vis--vis social policy; but also as a group to be helped and protected.
(b) Canadas changing immigration policies
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The story of CAWI-ITVF is also inextricably linked to the recent evolution of
immigration policy and trends in immigration to Canada. Since the early 1990s, federal
immigration policies have shifted in favour of increasing the number of immigrants in the
economic class, in an attempt to improve their economic outcomes but also in line with the
growing focus on economic benefits over other values, such as family reunification and refugee
settlement. Ironically though, during the same period that federal immigration policies were
adjusted to favour of those with advanced formal education and specialized training, changes in
the domestic economy were creating a growing mismatch between the kinds of immigrants that
Canada was welcoming, and the kinds of characteristics favoured by domestic employers
(Sweetman and Warman (2008).
The negative implications of these processes are clearly very important to the many
CAWI-ITVF members who are immigrants. They tend to be well-educated, with successful
careers in their countries of origin. Many of them decided to come to Canada so that their
children would have better lives, and therefore were aware that, to some extent, they would be
sacrificing their careers to further these goals. But despite this acceptance of starting again, as
women who have a sense of their own worth and their potential to contribute significantly to
their new setting, the discouraging labour market environment has had negative impacts. Often
this sense of self-worth has been worn down or even quashed through early difficult years in
Canada and the non-recognition of their previous employment experience. The result is often the
production of two somewhat contradictory positions: a sense of discouragement and loss of sense
of worth, coupled with a strong sense of agency and determination. They want to be accepted
and included in Canadian society while at the same time they do not want to reject their cultural
origins.
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Participation in CAWI-ITVF is part of what can be considered a political strategy on the
part of these women. Most have been, or are still, active in ethno-specific organizations and one
of the clear characteristics of CAWI-ITVF is that it is a mixed organization of women. Not only
does it bring together immigrant women from different national backgrounds, it also includes
diverse women born in Canada. Linked to the sense of agency and determination mentioned
above, CAWI-ITVF has become an opportune channel for immigrant women who want to both
honour their home culture and at the same time become active in mainstream organizations. This
is a choice made by each individual but the presence of a number of women who have made a
similar choice does mark the organization and it has also attracted the involvement of indigenous
women and women with disabilities with somewhat similar characteristics and motivations.
It is within this context that we now turn to exploring CAWI-ITVF as an organization
that is both a partner with the City of Ottawa and an oppositional community voice. An
intriguing element of CAWI-ITVF is that its participants seek institutionalization as a means of
shifting City Hall priorities to align with their own felt concerns. Their interest in
institutionalization is both pragmatic and principled they want to be part of City Hall in order
to shift its logic to one that is more in keeping with their own views of what an inclusive city
should be and they want , as well, to benefit from this shifted logic. In seeking out
institutionalization, CAWI-ITVF mimics the transfunctional urban social movements described
by Hamel et al (2000, p. 1.
(c) CAWI-ITVFS Genesis and Evolution
In a formal sense, CAWI-ITVF-IVTF began in November 1999, when the then Regional
Council of Ottawa-Carleton endorsed an International Union of Local Authorities (IULA)
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Declaration on the role of women in local government and agreed to set up a Working Group on
Womens Access to Municipal Services (Andrew et. al., 2004; Andrew and Klodawsky, 2006).
This phase of activity led to the conclusion that, although there were a number of interesting
initiatives within the City, there was no overall consideration of gender equality, much less
gender equality within the context of the full diversity of women. This insight emerged in part as
a result of becoming informed about other public space feminist organizing efforts directed at
the local level, both in Canada and internationally (Whitzman, 2006).
The interventions and recommendations of the Working Group on Womens Access to
Municipal Services led to a second phase of the project, now renamed the City for all Women
Initiative/Initiative: une ville pour toutes les femmes, where the intent was to establish a more
formal partnership with City Hall and embark on a much more ambitious set of goals: to
institutionalize the effective consideration of gender and equality throughout the municipality.
Both initiatives were supported by funds sought for and received from Status of Women Canada.
It is noteworthy that the involvement of Andrew and Klodawsky, as academics, together with in
kind (but not financial) support from the City of Ottawa, were pivotal in convincing Status of
Women Canada that these initiatives were worthy of their support. The earlier projects legacy
included important insights about how staff support should be acknowledged. In the earlier
endeavour, staff were assigned to participate in the Working Group as an add on to their other
activities without formal acknowledgement, despite the considerable work involved. Their
efforts were critical in moving to the next phase insofar as they provided vital lessons to the
academic and community women about how to get things done at City Hall. The value of this
insight and the importance of ensuring that staff involvement would be formally recognized in
the future, were key components in the second funding proposal, together with an equally
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assertive claim about the need for a full-time paid coordinator. CAWI benefited tremendously
from Status of Women Canadas willingness to respond positively to these arguments. Unlike the
Working Group arrangement, CAWI-ITVFs establishment involved an agreement with the City
that staff involvement would be formally recognized. The ability to hire a coordinator was a
second factor that distinguished the second phase from the first, but what was particularly
noteworthy here was the knowledge, skills, commitment and orientation of the person who was
ultimately hired. Not only did she bring a background in adult education and critical pedagogy to
the position. She also saw and encouraged myriad political possibilities, both bottom up (insofar
as she has worked tirelessly to help community women become effective in their lobbying
efforts) and top down (she also identified and/or supported appropriate kinds of involvement
with the municipality and strived to take advantage of whatever opportunities were on offer).
For example, when the second phase got started early in 2004, City Hall was caught up in
a budget crisis and unable to immediately follow through on its commitments to work with
CAWI-ITVF. The organization then decided to begin by consulting with a variety of community-
based womens groups, especially among marginalized women, asking them about their
experiences with the City of Ottawa. What became abundantly clear was that womens groups,
particularly those who were racialized minorities and/or who were from recently arrived ethno-
cultural communities, felt that they did not have the necessary knowledge about the structures
and processes of municipal government to even approach City Hall, much less influence it.
Municipal government was seen as something distant, complex and unapproachable. This led
CAWI-ITVF to seek provincial community development funds to set up a program Civic
Participation Training - to help women acquire the skills to help them in this task. The training
was seen as a means to empower women from marginalized communities to be able to assert
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That the partnership between the City of Ottawa and City for All WomenInitiative/Initiative: une ville pour toutes les femmes be renewed with the aim of
enabling the full-diversity of women be included in city decision making.
That the City of Ottawa continue to assign 2-3 managers to participate in the SteeringCommittee and continue to allocate staff time to work with the initiative as needed.
That the City of Ottawa and Community and Protective Services, as the leaddepartment, work with the City for All Women Initiative/Initiative; une ville pour
toutes les femmes to ensure that the goal, of implementing practices and strategic
plans that increase gender sensitivity and enhance gender equality, is realized.
their communitys concerns at City Hall. Recruitment to the initiative was based on both
individual characteristics and affiliation with a particular groups networks, in order to assure
that each womans learning would be shared with her home community
Simultaneously, as circumstances became more favourable, CAWI-ITVF worked to
partner with City Hall around the goal of making its decision-making practices and programs
more explicitly inclusive of diverse intersectional identities. The motion approved on May 5,
2005 was regarded as an extremely significant moment in CAWI-ITVFs history (Fig 1), and it
also illustrates the rather typical manner that the City of Ottawa practices its progressive
impulses.
Fig. 1. Recommendations approved by Health, Recreation and Social Services
Committee on May 5, 2005
This motion encapsulated a nascent acknowledgement that the full-diversity of women should
somehow be more recognized and more present in decision-making at City Hall, not only
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through the efforts of delegations such as the one described in the opening paragraphs, but also
through input into key programs and practices.
In order to enact these multiple roles, CAWI-ITVF has developed an organizational style
and approach to decision-making that reflects this multi-dimensional mandate. CAWI-ITVFs
key decision-making body is a Steering Committee comprised of CAWI-ITVF staff (typically 1-
3 individuals), between 5 and 8 community women (selected after an invitation to apply), 2
academic advisors (who have been Andrew and Klodawsky since inception) and 2 City Hall staff
(see Fig 2).. Since May 2005, CAWI-ITVF has proposed and developed a pilot gender equality
training guide for city managers, and, based on the success of this project, has been engaged by
the city on a fee-for-service basis to develop an equity and inclusion lens incorporating eleven
marginalized groups.
But these efforts by no means encompass CAWI-ITVFs active presence in Ottawa, as
Figure 2 also illustrates. In a broad range of venues both within and outside City Hall, and as part
of broader coalition efforts to reduce structural barriers for CAWI-ITVF women and others (such
as those represented in anti-poverty campaigns), CAWI-ITVF has articulated human rights and
economic and social justice arguments about the need to recognize the claims of the full diversity
of women. It is thus clearly understood that some aspects of CAWI-ITVFs agenda are outside
the purview of City Hall staff but not so other members of CAWI-ITVFs Steering Committee.
PART 4: ENACTING CONTESTATION: IN AND AGAINST THE STATE
The places that City Hall, and Ottawa more broadly, are becoming, and the subjects that
are being created, are thoroughly implicated with the multiple processes outlined above. As we
see it, CAWI-ITVF is a contemporary manifestation of prefigurative feminist politics and it is
also one example of a politics of place, albeit one that is impacted by neoliberalizing strands of
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governance. Explicitly, it has adopted a very particular, hybrid ethos or register in its quest to do
feminist local politics differently: institutionalization is sought to challenge both bodies and
structures: bodies in the sense of how CAWI-ITVF women understand and place themselves vis-
-vis politics and the city, and structures in the sense of how decision-making takes place,
including a view of politics as a spatialized multi-scalar and networked phenomenon (Jessop et
al, 2008). In doing so, CAWI-ITVF has not only raised questions about current political
arrangements at City Hall; equally it has challenged status quo spatialities that seem to favour
only certain types of bodies and perspectives. At a variety of scales and in a variety of places and
networks, CAWI-ITVF has aimed to reconfigure these relations and their outcomes by disrupting
and redesigning the who, what, how and where of city politics; in the wake, new subjectivities
and new spatialities are co-constituted. By exploring how CAWI-ITVF has promoted the
engagement of bodies not typically seen at City Hall, the aim of this section is to connect its
politics of becoming in place and its focus on engagement, to the arguments presented above.
(a) New Subjectivities
The song mentioned at the outset was one womans suggestion on how to get the
councillors to sit up and take notice but it was also a reflection of CAWI-ITVF members
emerging understanding of how best to make claims on the municipality. Prior to developing
these sorts of performances, the women had to see themselves as able to contest taken-for-
granted hegemonic understandings that were at odds with their own lived experiences. This
involved a two-pronged process. They needed to recognize and appreciate similarities amid
differences: though only some women might prefer dedicated single sex swim times for example,
the lack of attention to diverse womens recreational needs was a rationale for challenging how
recreation plans were decided upon more generally. At the same time, this kind of cerebral
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analysis was not sufficient. Also required was an embodied sense of entitlement that was
intertwined with visions of possible futures (and a vision of a possible present) where City Halls
decision-making capacities would be harnessed to their claims, not as individual plaintiffs but
rather as a collective actor demanding that diversity serve not as an excuse but rather as a
resource.
CAWI-ITVF has made over 20 formal presentations to various city bodies and when they
do so, peach scarves are always present. Organizing includes the effort to have as large a number
of diverse women as possible attending, to lend visible support to the presenters. CAWI-ITVF
conveys itself as a representation of diverse marginalized womens voices in Ottawa and so this
visualization is an important element in CAWI-ITVFs message they are trying to convey the
voices of all those groups who have difficulties making their views known at City Hall. In this
sense, the image of CAWI-ITVF as a partnership involving the City, community-based
womens groups and the universities strengthens CAWI-ITVFs ability to challenge business as
usual: we are a part of the City and as a partner, you cannot ignore us.
CAWI-ITVFs goal of engendering the decision-making processes of Ottawa City Hall
has, as its finality, a City of Ottawa that is inclusive of marginalized womens voices. The impact
of the new subjectivities that CAWI is helping to shape can be nicely illustrated by a recent
Awards ceremony of United Way Ottawa. The United Way had given a prize to CAWI-ITVF
for its work with immigrant women. The Awards were given out at a banquet that brought
together official Ottawa, including both business and political elites. There were three tables of
CAWI-ITVF women at the banquet and the women were delighted to be there, delighted to be
honoured and delighted to feel part of the Ottawa community. As always, the group splendidly
and uniquely in that context, represented diversity, in terms of colour, size, age and dress. In
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contrast to other awards received that evening, where the President or CEO alone represented the
organization, thirty women from CAWI went to the stage together. Two women stepped forward
as spokespeople and delivered, in eloquent English and French, a hard hitting message both of
thanks for the award and a reminder of the barriers faced by marginalized women. At the end of
the speeches, the thirty women threw their peach coloured scarves in the air, and shouted Our
voices count: notre point de vue compte. It was the visualization of democracy, solidarity and
diversity, women-centered and social justice seeking. At the same time it opposed the exclusion
of immigrant women and put forward an alternate vision of politics as it should be. At this
banquet, CAWI-ITVF women presented themselves not as supplicants grateful for recognition
by the local elites, but as engaged citizen claimants who were signalling a new and assertive
presence.
(b) New Spatialities
Although CAWI-ITVF does not have a public office at City Hall or anywhere else for
that matteriii
; the claiming of space at City Hall has been a key strategy of CAWI-ITVF, not
only to convince community women of the legitimacy of their claims but also to continually
remind City Hall staff and politicians that their constituents include women from a broad range
of backgrounds and perspectivesiv. Initial debates about whether meetings should be held at City
Hall, have morphed from reticence because of community womens feelings of alienation, into
an acknowledgement of their joint ownership of these spaces. As one member noted, being
recognized by numerous staff and councillors and greeted with you here, again! was a sign of
substantial progress. Only one year earlier, the same woman had spoken about how difficult it
was to get anyone at City Hall to even acknowledge the concerns of her Latin American
community.
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Similarly, in the process of developing the first, city-wide Civic Participation Training
initiative, a critical insight emerged. The training began as a way to empower women from
marginalized communities to be able to assert their own communitys concerns at City Hall.
Recruitment to the initiative was based on both individual characteristics and affiliation with a
particular groups networks, in order to assure that each womans learning would be shared with
her home community. Over time however, women also gained insights about their
commonalities as women across other differences. Prior to CAWI-ITVF, these women had
tended to regard the city through a lens that distinguished their particular community whether
of feminist disability activists, or aboriginal women, or gay women, or women from a particular
ethno-racial community -- from Others, where the focus was most particularly on powerful and
distant decision-makers with whom they felt unable to communicate, and much less on other
marginalized communities. Often these groups were both geographically and socially isolated.
Being active in CAWI-ITVF has profoundly shifted the womens understandings of Ottawas
socio-spatial landscapes. CAWI-ITVF has become a site of engagement and networking through
which women from dramatically different places (geographically, culturally, ideologically)
come together to share concerns and plan encounters for making issues known at City Hall
However, CAWI-ITVF operates not only at the level of Ottawa; its activities are
polymorphous in the manner discussed by Jessop et al (2008) and Mayer (2008) among others
(see Figure 2). It has activities at the neighbourhood level, linked either through the community-
based groups that CAWI-ITVF participants came from, or through the network of Community
Resources and Health Centre. Through these links, CAWI-ITVF women are exposed to different
forms of civic engagement (Andrew, 2009). Women do much of the work in their own
communitys organizations, but the formal leadership tends to be male. These organizations
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have often been the sites where women have begun to appreciate their own administrative and
leadership capacities but also the barriers that stand in their way. CAWI-ITVF has aided these
women to engage in scale jumping activities from neighbourhood to City, in order to take
advantage of training and contestation in ways that are likely to provide them with useful tools
and knowledge.
As well as the scale jumping from City to neighbourhood, there also exists scalar
interactions between Ottawa and the places of origin of CAWI-ITVF participants everywhere
from Aboriginal communities elsewhere in Canada to the various countries of origin of
immigrant women. The scale jumping to the global is a part of CAWI-ITVFs performance; it is
a way of recognizing the assets of those who have come to Canada and of acknowledging the
value of their cultures. It gives value to good practices from across the world and value to
CAWI-ITVF for being able to access and contribute to these practices. Thus, the concrete spaces
of CAWI-ITVF-IVTF cover territory (the Ottawa community, the diaspora communities), place
(Ottawa City Hall and various meeting spaces throughout the City), scale (jumping from
neighbourhood to city and from city to elsewhere and back again), and networks (links to diverse
city-wide ethno-specific organizations; neighbourhood based Community Resource Centers;
other equality seeking community organizations in Ottawa and beyond).
PART 5: CONCLUDING THOUGHTS
Admittedly, CAWI-ITVFs story is very much a product of circumstance, place and time.
There is nothing automatic or natural or easy about the manner in which CAWI-ITVF has helped
to shape the new subjectivities and new spatialities described above. CAWI-IVTF would not
exist without the extremely skilful work of its coordinator and therefore without the senior
government funding that has supported her efforts. These efforts include: work to identify
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women from multiple backgrounds who might participate; work to bring diverse voices together
in time and space for discussions about goals and approaches; work to create feelings of
togetherness amid diversity; and work to construct both the content and the form of CAWI-
ITVFs vocal and visual performances. Listening, discussing, debating, supporting, planning,
anticipating and building womens confidence are all building blocks in constructing the
alternative politics that reflects the concept of a politics of becoming in place. Voice and
visibility have become central themes of the new subjectivities and new spatialities of CAWI-
ITVF participants. They are the means by which attention has been garnered and political
legitimacy granted to those who have traditionally not been seen or heard at City Hall. CAWI-
ITVFs motto is: Our voices count notre point de vue compte. Voice is about process and
about outcome and impact. The challenge is to keep the voices of the CAWI-ITVF participants
authentic and true to their vision of life and politics and, at the same time, to be voices that the
City is able to listen to and act upon. To contest one has to be listened to otherwise it is not
contestation but only noise. The processes of decision-making in Ottawa City Hall, and generally
across city halls in Canada, give considerable space to voice but only when this voice is
organized and controlled by the City. The challenge is constant for CAWI-ITVF voice that is
listened to. CAWI-ITVF participants articulate a holistic vision of life one uncomfortable with
the segmenting of activities into containers that are only political or social or cultural. The City
wants segmentation of voice you can speak to a specific clause of a specific motion, you are
allowed so much time, you are on topic or you are not on topic. CAWI-ITVFs response has
been to work with participants to create urban citizens that both engage with standard City Hall
processes (albeit sometimes in refreshingly unusual ways) but also retain a right to contest
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beyond these approaches and to do so in a feminist register, should the decisions be contrary to
their understandings of what would be just.
At the same time that CAWI-ITVFs story is specific and particular, it also offers
valuable insights for other critical, engaged scholars with an interest in local politics. One such
insight is that the possible subjects and spaces of contentious politics are more diverse and
diffuse than might appear at first glance. Subjects are not only those who are ready to engage in
local politics should funds and organizers become available. They also are unlikely actors whose
perceived liabilities might become resources when the focus is on processes of engagement.
Moreover, neglect of such capacities are potentially significant. A second insight is more
particularly about contentious politics in a feminist register. The feminism that we understand as
informing the efforts of Gibson-Graham (2006) and Harcourt and Escobar (2005) is also alive
and well within the confines of neoliberalizing cities such as Ottawa. In these places, the lines
between community organizations and state institutions are very fuzzy and are probably
becoming are more so. Working in a feminist register in such circumstances means having
patience in the way that Appadurai (2006) described this tactic and its connections to slow
learning in relation to the Mumbai Alliance. It means that there is a tight rope to be walked,
between the need to constantly be nurturing and checking back with ones base at the same
time as one tries to cultivate opportunities for progressive changes within formal state
institutions at a variety of scales. Obviously, the potential pitfalls of such a strategy are
numerous. Simultaneously though, we know far too little about the potential impacts of a greater
capacity to carry forward collective claims for inclusion and equality.
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iCorrespondence concerning this article should be addressed to Fran Klodawsky, Department of
Geography and Environmental Studies, Carleton University, 1125 Colonel By Drive, Ottawa,
Ontario, Canada, K1S 5B6; telephone: 613-520-2600, e. 8689; fax: 613-520-4301; e-mail:[email protected].
iiIn 2006, the mayoral race was won with the slogan zero means zero referring to a promise not
to raise taxes. In 2008, City Council approved a motion to increase taxes by 4.9%, a rate increase
that meant there would be a significant budget shortfall.
iiiWhile there have been numerous discussions about the pros and cons of setting up an official
office, until now CAWI-ITVFs physical location has been the homes of its staff (with
appropriate compensation and provisions for separating home and work activities).
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iv
Since 2004, active CAWI-ITVF members have included activists from the aboriginal,
disability and francophone communities, university students and professors, as well as
newcomers from Bangladesh, Ethiopia, Iraq, Peru, Rwanda, Somalia and Venezuela.