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Unit 2: Table of contents1. Aguidetorelationshipbuilding:Meetingandworkingwithyourneighbour...................... 13 1.1 WorkingwithFirstNations:Aguideformunicipalities.......................................... 13 1.1.1Tipsforworkingeffectivelytowardstrongrelationships.............................. 16 1.2 Workingwithmunicipalgovernments:AguideforFirstNations............................ 17 1.3 Tipsforworkingeffectivelytowardstrongrelationships: AguideforFirstNationsandmunicipalities........................................................ 19 1.4 Communityengagement..................................................................................... 20 1.5 Cross-culturalawareness.................................................................................... 20 1.5.1 Benefitsofcross-culturalawareness......................................................... 21 1.5.2 Possibleareasfordiscussioninacross-culturalworkshop.......................... 21 1.5.3 Applyingthisknowledgeinyourworkingrelationship................................. 22 1.6 Checklistforpositiverelationshipbuilding........................................................... 22 1.7 Tools:Templatesforrelationshipbuilding............................................................ 24 1.7.1Letterofintenttemplate........................................................................... 24 1.7.2Communicationsprotocoltemplate........................................................... 26 1.8 Relationshipbuildingreferences......................................................................... 312. MunicipalandFirstNationsgovernancestructures........................................................ 33 2.1 Similaritiesanddifferences................................................................................ 33 2.2 Municipalgovernancestructures......................................................................... 35 2.2.1Municipalactsandministries................................................................... 35 2.2.2Municipalcouncils................................................................................... 35 2.2.3Municipaladministration.......................................................................... 36 2.2.4Municipalservices................................................................................... 36 2.2.5Municipalfunding.................................................................................... 37 2.3 FirstNationsgovernancestructures.................................................................... 37 2.3.1TheIndian Act ......................................................................................... 37 2.3.2Chiefandcouncil..................................................................................... 38 2.3.3Tribalcouncils......................................................................................... 38 2.3.4Bandadministration................................................................................. 38 2.3.5Socialstructure........................................................................................ 39 2.3.6Bandservices.......................................................................................... 39 2.3.7Bandfunding.......................................................................................... 39 2.4 Governancestructurereferences......................................................................... 403. Collaborativedisputeresolution.................................................................................... 41 3.1 Prevention......................................................................................................... 41 3.2 Alternativedisputeresolution............................................................................. 42 3.3 Mechanismsandmethodsfordisputeresolution................................................. 42 3.4 AboriginalperspectivesonADR.......................................................................... 45 3.5 ADRreferences................................................................................................. 454. RelationshipBuildingCaseStudies.............................................................................. 47 4.1 SliammonFirstNationandtheCityofPowellRiver(BC)...................................... 48 4.2 MembertouFirstNationandtheCapeBretonRegionalMunicipality(NS)............. 52
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UNIT 2
1. A guide to relationship building: Meeting and working with your neighbour
1.1 Working with First Nations: A guide for municipalitiesItisimportanttorecognizethatthereisasig-nificantamountofdiversityamongFirstNa-tionsgovernmentsintermsoftheirpopulationsize,geography,capacity,income,educationalattainmentandautonomy.Therearead-ditionaldifferencesacrossCanadaconcerninglinguisticgroupings,culture,historyandtheextenttowhichtraditionalpracticeshavebeen
maintainedthroughpoliciesandprogramsofdiscriminationandassimilationsuchasresidentialschools.AttentionshouldbepaidtogettingtoknowyouradjacentFirstNationcommunityindividuallytogetabetterunder-standingoftheiruniquehistoryandpoliticalandsocialrelationships.(Formoreresourcesincludingcommonquestionsandanswers,pleaseseeUnit 2, Chapter 2.4: Governance structure references.)
Intergovernmentalrelationshipsbindcommunitiestogetherinapositivewayandencouragecol-laborationanddevelopmentandhelpensurepotentialconflictisresolvedmoreeffectivelywhenpursuingaserviceagreement.OnlyinrecenttimeshastherelationshipbetweenFirstNationsgovernmentsandlocalgovernmentsbeenidentifiedasasignificantnationalopportunity.FormuchofCanada’shistory,provinces,territoriesandlocalgovernmentswereonlymarginallyinvolvedinAboriginalissues.Inthepastfewdecades,anumberofmoderntreatieshaveresultedinincreasedinteractionbetweenFirstNationandlocalmunicipalgovernments.Todevelopaserviceagree-ment,FirstNationsandlocalmunicipalgovernmentswillneedtocontinuetointeractandensurethattheyaredoingsoinaneffectivemanner.
Thenextsectionexploresprinciplesbehindcreating,enhancingandmaintainingharmoniousandproductiverelationshipsbetweenmunicipalgovernmentsandFirstNationsgovernmentsincludingcommonmythsandtipsforworkingeffectivelytogether.
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What is the difference between Aboriginal, First Nation, and Indian? Which word should I use?
We hear a lot about Aboriginal rights and title. What does this mean?
AboriginalreferstotheoriginalinhabitantsofCanadaandcanbesub-dividedintothreegroups:Indians,InuitandMétis.Thesegroupshavedistinctheritages,languagesandbeliefsandareonlylinkedthroughtheirindigenousancestry.
First NationsisatermthathascomeintouseinthelastfewdecadestoreplacethetermIndian,whichsomepeoplefindoffensive.Initsuse,FirstNationsreferstoanindividualofindigenousancestrywhoisneitherInuitnorMétis,andinmanycasesalsoreplacesthetermsbandorcommunity.
AlthoughFirstNationsisconsideredmorepoliteandrespectful,thistermisnotusedcommonlyinlegaldocumentation.Historically,FirstNationspeoplewerereferredtoasIndian,whichisatermtodescribeAboriginalpeoplewhoareneitherInuitnorMétis.
Ingeneral,whatpeopleprefertobereferredtoisindividualchoice.Itisimportantthatyouaskthesequestionsandgettoknowyourcontact’sindividualperspectivesontheseissues.
AboriginalrightsrefertothepracticesthatwereinusebeforeEuropeancontact,includinguniqueculturalpractices,traditionsandcustoms.Legallyspeaking,therightsofAboriginalpeoplesaresetoutseparatelyintheConstitutiontorecognizethattheyarethedescendantsoftheoriginalinhabitantsofCanada.AlthoughtheCanadianConstitutionrecognizesthatAboriginalrightsexist,itdoesnotdefinespecificallywhatisconsideredanAboriginalright.1Ongoingcourtdecisionsareworkingthroughresolutionstotheseclaims.
Aboriginaltitlereferstotherighttothelanditself,notjusttheactivi-tiesthatmayoccurontheland.Insomepartsofthecountry,treatiesdatingbacktothe1700sweresignedsettingapartlandsforAboriginalpeoples;thiscontinuedacrossmuchofCanadathroughthe1900s.SomeareasofCanadahavenotreatiesandthereforesomeFirstNationsassertthatbecausetheydidnotsurrendertheselandstotheCrown,theystillhaveAboriginaltitletotheseareas.Ongoingcourtdecisionsareworkingthroughresolutionstotheseclaims.
BothAboriginalrightsandtitleareconsideredcommunalratherthanindividual.Aboriginaltitlerecognizesaparticularcommunity’saccesstoland,ratherthanindividualownershipofthatparcelofland.
1 The Constitution Act,1982s.35.
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Is it true that First Nations have more privileges than the rest of the population?
Myth: There are no more “real” Aboriginal peoples.
ItisacommonmyththatallFirstNationshavemanyadditionalprivilegescomparedwiththoseofthegeneralCanadianpopulation.Commonlycitedprivilegesincludenotpayingtaxes,receivingfreeservicesthatothersmustpayfor(suchaspost-secondaryeducation),andhavingeasierlivesthanthoselivingoff-reserve.
Infact,FirstNationsenjoythesamefundamentalbenefitsofallCanadianssuchasunemploymentinsuranceandthechildtaxbenefit.ThefederalgovernmentprovidesFirstNationswithservicesthatareconstitutionallyallocatedtotheprovinces.
LifeformembersofmanyFirstNationsisnoteasierthanitisfortheaverageCanadian.OverallthereisalowerqualityoflivingforAboriginalsthanthatoftheaverageCanadian.Thisincludesshorterlifeexpectancy;higherunemployment;higherratesofsuicide,alcoholismanddrugabuse;higherlevelsofinfantmortality;andproportionallylowereducationalattainment.2Inaddition,forAboriginalswholiveonreservesitisdifficulttoownthelandonwhichtheirhousesarebuilttothesameextentthatotherCanadiansenjoy.Thisofferslimitedstabilitycomparedtothatofthoselivingoff-reserve.Thefederalgovernmentincooperationwithbandcouncilsthusprovides,forexample,additionalfundingforpost-secondaryassistanceandhousingtoensurethatFirstNationsmayachievethesamestandardoflivingasotherCanadians.
Inthecaseoftaxes,Inuit,Métisandnon-statusIndiansarerequiredtopaytaxes.FirstNationsindividualsworkingon-reservewithacompanythatisalsolocatedon-reservearenotrequiredtopaytaxes.However,allFirstNationsworkingoff-reservearerequiredtopaybothfederalandprovincialtaxeswiththeexceptionofemployeesoforganizationsthatarespecificallygearedtowardAboriginalpeople.
WhileAboriginalpeoplelivemodernlives,thisdoesnotmeantheyarenolongerany“real”Aboriginalpeoples.Manyareworkingtopreserveandpromotetheirownidentity,culture,traditionalpractices,valuesandspirituality,whichvarygreatlyfrombandtoband.
ManyAboriginalpeoplestillpractisetraditionalactivitiessuchashunting,trappingandfishing,andmanyhavemaintainedarespectfor,andknowledgeof,theirtraditionalterritoriesandenvironments.
2 Formoreinformation,see:“FactSheet:TopMisconceptionsaboutAboriginalPeople”bytheAssemblyofFirstNations(AFN)inUnit 2, Chapter 1.8.
UNIT 2
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1.1.1 TipsforworkingeffectivelytowardstrongrelationshipsTherearesomegeneraltipstokeepinmindwhenbuildingarelationshipwithaFirstNationsgovernment.ThefollowingtipswerewrittenbytheCommitteefortheAdvancementofNativeEmploymentatIndianandNorthernAffairsCanada(INAC)andappearedintheirpublication,“Aboriginal Awareness Guide.”
Show respect• ItisimportanttonotjusttalktoFirst
Nationswhenyouneedsomething—gettoknowthemasindividuals.
• Taketimetolearnaboutcommunityhistory,achievementsandchallenges.
• RefusingfoodordrinkfromthehostingFirstNationmaybeconsidereddisrespectful.
• Communicateinpersonratherthanbyemailortelephone.
Communicate effectively• Letpeoplefinishwhattheyaresaying
andrespectsilencesaftersomeonehasfinishedspeaking.
• Bepreparedtoworkinahighlyemotionalenvironmentwhendiscussingsomeissues,andbepreparedtolistenandnottakeanissuepersonally.
• NeverrefertoFirstNationsasstakeholdersnorusetheterminstitutionalize;bothhavenegativeassociations.
• Someindividualsavoiddirecteyecontactasasignofrespect;donotinterpretthisasshynessorbeinguntrustworthy.
• Remember,keepthingslight!Humourisimportant.
Make effective decisions • Planasufficientamountoftimefor
meetings,especiallyifdecisionsneedtobemade.
• Trytoavoidsituationswithauthoritativedecisionmakingorimposedsolutions;lookforbuildingconsensusinthegroup,anddecisionswillbemorelegitimate.
• Individualscanbecomeuncomfortableifaskedtomakedecisionsforthegroup.Oftentimes,communityconsultation,col-lectivedecisionmaking,andpermissiontomakedecisionsmustoccur.
UNIT 2
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1.2 Working with municipal governments: A guide for First NationsSimilar to First Nations communities, there is a significant amount of diversity among municipalities across Canada with regard to their population, size, geography and capacity. Therefore, when considering working with a nearby municipality for the provision of services, it is important to take time to learn the specifics of their unique community, government and needs.
UNIT 2
Why would a municipality and First Nations want to work together?
Theincentivesforserviceagreementsincludeeconomiesofscaleandotherbenefitstobuildingpartnerships,suchasthefollowing:
• Improvingrelationships(community-to-community,government-to-government)
• Enhancingsocialstandards• ProvidinggrowthandnewopportunitiestobothmunicipalandFirst
Nationscommunities• Buildingastrongerlabourforce• Increasingcapacitywithbothpoliticalandtechnicalstaff,dueto
knowledgesharing• Implementingworkingpartnershipsthatbecomebusinessasusual• Accommodatingregulatorychanges;workingtogethertomeet
standards• Improvinglevelsofservice• Realizingfinancialsavings
Maintaininghealthycommunitiesandregionsisineveryone’sinterest.FirstNationsandmunicipalitiessharemanyofthesameresponsibilitiesastheirresidents.Inmanycases,communitymembersliveonthereserveorinamunicipalityandhavefamilyinbothcommunities.Thus,coopera-tionisimportanttoensuregoodrelationships,strongcommunities,andimprovedservicestocommunitymembers.Cooperationbetweenmunici-palitiesandFirstNationsisawaytoachieveabetterlevelofserviceonthelargeissuesthatrequirecooperation.Suchissuesincludesourcewaterprotection,recreationandsomeinfrastructureandservicesprojects.
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Is it true that municipalities have a lot of fund-ing because they receive transfers from provincial and federal governments and through their municipal tax systems?
MunicipalitiesacrossCanadahavediversesetsofissuesanddifferinglevelsofcapacitytodealwiththesechallenges.Ofeverytaxdollarcol-lected,onlyeightcentsgotomunicipalgovernments.Withthatamounttheymustdeliveranever-expandingcomplementofhumanandphysicalservices.Fromchildcaretohousingtosocialassistance,municipalgovernmentsaretakingoverashareofthesocial-servicecostsoncebornebythefederalandprovincialgovernments.Withoutadditionalresources,theseservicesarefundedprimarilythroughpropertytaxes.Municipali-tiesoftenfacefinancialconstraintsduetothelargenumberofservicesthattheyareresponsibleforprovidingtotheirresidentsversusthelimitedamountoffundingthattheycanderivefrompropertytaxes—particularlyformunicipalitieswithsmallpopulations.
Municipalitiesmustplancarefullytoensurethattheycanmakethemostoftheirlimitedfunds.Andtheymustdealwithconstraintsbymakingtrade-offswithinitiativesintheircommunitiestoensurefinancialwell-being.
UNIT 2
Myth: Cooperation with a municipality is not an option because the federal govern-ment does not manage it.
AcrossCanada,municipalitiesandFirstNationsareworkingtogethertomakestrongercommunities,improveregionalstandardsofliving,andcooperateonservices.Despitethedifferinglevelsofgovernment,FirstNationsandmunicipalitieshavesimilarcommunityresponsibilitiesandconcernsandareabletoworktogether,governmenttogovernment.
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UNIT 21.3 Tips for working effectively toward strong relationships: A guide for First Nations and municipalities
Thefollowingsectionoutlinessomequicktipsthatarecommonlyoverlookedandshouldbekeptinmindbybothpartieswhilebuildingrelationshipsanddiscussingcommunityneeds.
Ensure that you are talking to the right person Generallyspeaking,membersfrombothpartiesshouldcontacttheirequalintheothergovernmentorcommunity.Mayors,aspoliticalleaders,shouldapproachtheChiefofaFirstNation,alsoapoliticalleader.BandmanagersshouldapproachChiefAdministrativeOfficers(CAOs)astheyarebothheadsofadministra-tion.Publicworksstaffshouldfeelcomfortablespeakingwithpublicworksstafffromtheirneighbouringcommunities.Thismaychangeovertimeasrelationshipsgrow,butitisespe-ciallyimportantatthebeginningofarelation-shiptoshowrespectandensureyourconcernsareaddressedinface-to-facemeetingswiththerightperson.
Distinguish the political from the technicalConversationsaboutcommunitycooperationandserviceagreementscangenerallybegroupedintotwocategories:technicalconcernsandpoliticalconcerns.Bothcatego-riesbringforwardvalidandvariedconcerns.
Political concernsincludethenatureofpoliticalrelationships,historicaltensions,governance(relationshipsbetweenthefourlevelsofgovernment),jurisdictionandpolicy.
Technical concernsincludemanagementofjointfacilities,serviceagreementnegotiation,engineeringstandards,communityhealthandsafetyneeds,regulationsandrequirements.
Althoughitisextremelydifficulttocompletelyseparatetheseitems,itiseasytobecomeside-trackedandfrustratedwhenconversationsmixpoliticalandtechnicalconcerns.Byclarifyingthepurposeofeachmeeting,itmakesiteasierforbothpartiestoadjustexpectations.
Attend as many events as possibleMakeanefforttoshowrespectforyourpartnercommunitybyattendingcommunityevents(e.g.,gatherings,openhouses,powwows)andmeetingswhenyouareinvited.Thisisapositivewaytoshowinterestinimprovinggovernment-to-governmentrelationshipsandtodemonstrateawillingnesstobuildrelation-shipsbetweencommunities.Ifyouareunabletoattend,trytomakeanefforttofollowupandensurethatyoucanmeetorattendanotherupcomingevent.
Joint Council MeetingsJointCouncilmeetingsareaneffectivewaytogetpoliticalrepresentativestogethertoprovideupdatesoneachother’scommuni-ties,establishrelationships,andcooperateonissuesofmutualconcern.JointCouncilmeetingsmaybeinformalandheldoveramealormaybeformalizedinacommun-icationprotocol(seeUnit 2, Chapter 1.7.2: Communications protocol template).
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1.4 Community engagementAs a part of maintaining a long-term partnership, municipalities and First Nations must work together to generate awareness and engage their communi-ties on the benefits of government-to-government relationships.
Communityengagementcaninvolvecom-munitygatheringsandmeetings,door-to-doorinformationsharing,pressreleases,emailsandinformationflyers.Althoughcommunityengagementisbynomeansmandatory,itactsasapowerfulmechanism:
• Itimproveslocalsupportofcommunitiesworkinginpartnership.
• Itaddressesconcernsandmythsfromcommunitymembers.
• Ithelpsbringaboutbehaviouralchangesfromresidentsofbothcommunities.
Thesebenefitsensurethesustainabilityofcooperationandserviceagreementsinthelongterm.
Thefollowingsectionoutlinesseveraltipstoassistinorganizingsuccessfulcommunitymeetingsandwritingqualitypressandmediareleasestogetsupportforyourserviceagree-ment.(Formoreinformationandadditionalresources,pleaseseeUnit 2, Chapter 1.8: Relationship building references.)
1.5 Cross-cultural awareness
InthecontextofFirstNationandmunicipalpartnerships,itisimportanttoconsidercross-culturalsimilaritiesanddifferenceswhennegotiatingserviceagreementssinceeachgroup’sculturalvalueswillshapetheirbeliefs,perceptionsandactionsatindividualandcommunitylevels.Oftentimesforpartner-shipstobesuccessfulandserviceagreementstobesigned,aperiodofgettingtoknoweachotherisnecessarytocreateafoundationoftrust.Thissectiondiscussesthebenefitsofestablishingcross-culturalawarenessinitia-tivesbetweenmunicipalandFirstNationgovernmentsasasteppingstonetoserviceagreements,whichincludestipsforcommu-nicatingandtopicstoconsiderincludinginacross-culturalworkshop.
Is your culture oriented toward individualism or collectivism? Individualism—tendtoplacehighvalueonequality,freedom,materialcomfort,taskcomple-tionandpunctuality.Typicalbehavioursincludefrustrationwithlatenessandwhatisperceivedas“wastedtime”andin“gettingrightdowntobusiness”inmeetingsanddiscussions.Non-indigenousmainstreamculturestendtobeorientedtowardindividualism.
Collectivism—tendtovalueconsensus,cooperation,harmonyandpatience.Affiliationwithothersandhumanrelationsareimportant,andsoindividualsaremorelikelytoforgivelateness,andtotaketimetoestablisharelationshipbeforegettingdowntobusiness.Traditionalindigenousculturestendtobeorientedtowardcollectivism.
Source: AboriginalAwarenessWorkshop:GuidetoUnderstandingAboriginalCulturesinCanada,AboriginalAffairs andNorthernDevelopment
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UNIT 21.5.1 Benefitsofcross-culturalawarenessCross-culturalawarenessencouragestherecog-nitionofculturaldifferenceswhilealsonotingsimilaritiesthroughwhichcommunication,understandingandrelationshipscanbeforged.Thefollowingpointsreflectthevalueofgainingastrongersenseofcross-culturalawareness:
Reduces misunderstandings and enhances trust• Understandingandtrustcanbedeepened
wheneachgovernmentismoreawareofhowitsandtheothergovernment’sculturalbackgroundinfluencetheirperceptions,valuesanddecisions.
Aids in planning, setting goals and problem solving• Eachgovernmentcanplanandproblem-
solvemoreeffectivelyastheywillbemoreattentivetowhatisimportanttothemandtheotherparty.
1.5.2 Possibleareasfordiscussioninacross-culturalworkshopHoldingacross-culturalworkshopearlyintherelationship-buildingprocesscanprovideopportunitiestoexamineculturalviewsandencourageopen,honestcommunication.Thissectionexplorespossibletopicsfordiscussionatamunicipal–FirstNationcross-culturalwork-shop.SomeofthefollowingtopicswerewrittenbySPARCBCandtakenfromthepublication,Building Bridges Together: A Resource Guide for Intercultural Work Between Aboriginal and Non-Aboriginal Peoples.(Formoreresources,pleaseseeUnit 2, Chapter 1.8: Relationship building resources.)
Debunk prejudices and stereotypes Across-culturalworkshopcanimproveaware-nessofpreviousexperiencewiththeotherculturalgroup(e.g.,lengthandtypeofcontact)andbreakdownstereotypesabouteachculture.
Itmaybeusefultotaketimetodiscusswaystochallengeprejudicethatexistsandrecognizehowitisholdingyourrelationshipsback:
• Whatstereotypesexistinyourcommunity?• Howhavetheybeenaffectingyour
community?• Whatimpactdostereotypeshaveonyou?
Onyourpartner?• Whatisthebestwaytoaddressthese
challengesinyourcommunities?
Learn about each other’s culture Thispartofacross-culturalworkshopprovidesanopportunityformunicipalandFirstNationparticipantstolearnabouteachother’sculturaltraditions,culturalprotocolsandunwrittensocialrules,andculturalevents.Invitingyourpartneringcommunitytoaneventsuchasafestivalorpowwowcancultivategreatercultureunderstandingandrespect.
Identify management style and administrative processes SometimesFirstNation–municipalrelation-shipscanfacechallengesrelatedtoalackofknowledgeofpoliticalandadministrativestructures.CommunitiesmustalsobeawareofchallengesthatbothmunicipalandFirstNationadministrationsface(i.e.,underfunding,lackofcapacity,limitedresources).Areastodiscussincludethefollowing:
• Leadershipdifferences(stafffunctions/re-sponsibilities,electionprocess,etc.)
• Organizationalprocessandoperations(funding,decisionmakingprocess,etc.)discussingyourcommunity’svisionandgoals
FormoreinformationaboutmunicipalandFirstNationsgovernancestructures,pleaseseeUnit 2, Chapter 2.2: Municipal governance structuresandUnit 2, Chapter 2.3: First Nations governance structures.
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1.5.3 ApplyingthisknowledgeinyourworkingrelationshipBygainingabetterunderstandingofyourneighbouringcommunitythroughsomeofthestrategiesoutlinedinthissection,youcanapplythisnewunderstandingtoyourworkingrelationshipandimprovecollaboration.Thereareseveralconceptstokeepinmind:
• Rememberthatthecoreofanysuccessfulrelationshipisrespectandtrust.
• Lookforcommongoalsandopportunitiestoworktogetherwhileidentifyinggaps.
• Complywithotherparty’snegotiationprotocolsinawaythatiscomfortableforallparties.
• Appreciatethatpeoplefromdiverseculturesattachdifferentmeaningsorimportancetosimilarsituations.
• Developaclearunderstandingofhowtheotherpartydefinesthesituationandtheissuestobediscussed.
• Developaconsistentmethodforcommuni-cationthroughoutthenegotiationprocess.
1.6 Checklist for positive relationship-buildingThe following section highlights ways in which both First Nations governments and municipal governments can ensure effective relationships. For practical application of these principles, please see Unit 3: Guide to Service Agreements.
Be respectful
Asuccessfulworkingrelationshipwillbebasedonasolidfoundationofrespect.Thismeanstakingtimetolearnaboutyourpartner,theirvalues,perspectivesandcommunity.Beingrespectfulalsomeanscarefullyconsideringtheimpactofyouractionsontheother.
Communicate openly
Thebestwaytogettoknowyourneighbouristohaveregularface-to-facemeetingswhereopenandrespectfulcommunicationisencouraged.Serviceagreementscannotbenegotiatedbycorrespondence;theissuesaretoocomplexforsuchanapproach.Open,in-persondiscus-sionswillhelpavoidmisunderstandings.
Create value for both parties
Creatingmutualgoalsandkeepingyoureyeonthebigpicturewillhelprelationshipsmoveforwardandhelpeveryonestrivetoovercomeobstacles.
Have realistic expectations
Althoughitmaybeobvious,itisworthstatingthattheissuestobeaddressedinaserviceagreementcannotberesolvedinonlyonemeeting.ThegoalofthefirstmeetingbetweenthemunicipalityandFirstNationshouldsimplybeforeachpartytogainabetterunderstandingoftheotherparty’sconcernsandwhatmaybeneededtoaddressthem.
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Use bottom-up approaches
Whenworkingbetweengovernments,itiseasytoforgetthatcooperationandsolidrelation-shipsalsoneedtooccuratacommunitylevel.Byengagingcitizensininformationsessions,workshopsandconsultations,theentirecommunitybenefitsandcooperationagreementswillbemorewidelyaccepted(pleaseseeUnit 2, Chapter 1.4: Community engagement).
Practise integrity
Practicingintegritymeansworkinghonestlyandopenlyandfollowingthroughonpromisesandobligations.Itiscloselylinkedwithbeingtrustworthyandbeingabletotrustothers,allofwhichareimportanttokeepinmindwhilebuildingrelationships.
Use resources and experts
Don’tgoitalone!Althoughtheprocessofrelationshipbuildingseemsoverwhelming,thereareplentyofresources,contacts,andexpertsavailabletohelpyou.Theycanansweranyques-tionsyoumayhaveaboutrelationshipbuilding,disputeresolution,serviceagreementsandcommunityinfrastructure.Refertoourchapter-endreferences,annotatedbibliographyandcasestudysectionformoreinformation.
Be flexible
Whileworkinginlargegroupsanddealingwithcomplexissues,itiseasytobecomefrustratedandoverwhelmedandtoexperiencedelays.Bybeingflexible,youarebeingresponsivetochangeandreducingstressanddisappointmentifthingsdonotgoexactlyasplanned.
Practise equality
Makesurethateveryoneintherelationshipfeelsliketheyarebeingtreatedfairly.Ifequalityisnotpossible,ensurethatthereisawell-understoodreasonforanydifferenceintreatment.
Think long-term
Planforthelongtermandestablishwhereyouwouldliketoseeyourcommunityin25–50years.Youwillthenbebetterabletoestablishyourprioritiestodayandidentifypossibilitiesforcollaborationinthefuture.
Clarify decision-making processes and responsibilities
Tomakeyourpartnershipmosteffective,itisimportantthatbothpartiesclarifydecision-makingprocesses(i.e.,consensus-based,vote-based)andthatpartiesunderstandtheirresponsibilitiestoattendmeetings,participateindecisionsandusedisputeresolutiontechniqueswhennecessary.Itisimportantforeveryonetounderstandexactlywhatthevariousactorscanofferandwhattheycannot.Bybeingopen,itiseasiertoestablisheachactor’sroleinachievingsharedobjectives.
Establish systems for dispute resolution
Incaseswheretherearedisagreementsamongparties,anestablisheddispute-resolutionsystemcanhelppartiesresolveconflictbeforerelationshipsarenegativelyaffected.Formoreinformationaboutdisputeresolution,seeUnit 2, Chapter 3: Collaborative Dispute Resolution.
UNIT 2
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1.7 Tools: Templates for relationship buildingMakingcontactwithyourneighbourmayseemoverwhelmingatfirst.Howdoyouintroduceyourselfandbegintobuildarelationship?Howcanyouformalizearelationshipandensurethatyouandyourneighbouraremeet-ingonaregularbasistodiscusscommunitydevelopmentandconcerns?Thefollowingtoolswillhelpyouapproachyourneighbouror,ifyourcommunitiesandgovernmentshavealreadybeenincontact,helpyoutoensurethatyourcommunitieswillmaketimeforeachotheronaregularbasis.
1.7.1 LetterofintenttemplateAletterofintentisabriefletter,usuallynomorethanonepage,thatoutlineswhyandhowyourcommunitywouldliketobuildarelationshipwiththeletterrecipient’scommu-nity.Thistypeoflettercanbeusedtoencour-agefuturemeetingsandinformaldiscussionswhereindividualcommunityvisionscanbediscussedandwaysinwhichjointconcernsmaybedealtwith.Aletterofintentisabroadformofcommunication.Itcanbeusedwhencommunicatingbetweenhigh-levelelectedofficialssuchastheChief,theMayor,thebandcouncilorthemunicipalcouncil.
Note: Thetemplateprovidedisnotalegaldocumentandisintendedforguidancepurposesonly.
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[Name of First Nation or Municipality]
[Date]
[Name]
[Position (e.g., Mayor/Chief)]
[Address]
Dear[Name of recipient(s)],
Iwouldliketointroducemyselfasthe[position]of[Name of First Nation or Municipality].Ihavebeenworkingwith[Name of First Nation or Municipality]for[number of years/months].
Lately,mycommunityhasbeenfocusingon:
[Discuss current overall objectives in your community, for example, economic development, increasing environmental sustainability, or improving services or infrastructure.]
Inthenext30days,Iwouldliketoscheduleacasual[get-to-know-you meeting/breakfast/lunch/dinner]wherewecanlearnmoreabouteachotheranddiscussourrespectivecommunitiesandourvisionsforthefuture.Aswebothknow,itisimportanttoknowyourneighbourandworktogetherforbetteroutcomesforbothcommunitiesandtheregion.Pleaseletmeknowifthereisaconvenienttimeforyoutomeetwithme.
Ilookforwardtobuildingarelationshipwithyouandyourcommunity.
Sincerely,
[Signature]
[Name]
UNIT 2
Letterofintent
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UNIT 2
1.7.2 CommunicationsprotocoltemplateAcommunicationsprotocolagreementdefinestheparametersofarelationshipbetweentwoormorecommunities.Acommunicationsprotocolmayalsobecalledamemorandumofunderstanding,communityaccord,relationshipagreementorcommunicationsagreement.Generally,communitiesthathaveestablishedamutualinterestandidentifiedcommoncommunityorregionalgoalswillenterintoacommunicationsprotocolagree-ment.Thisensuresthatregularmeetingsandongoinginformationsharingwilloccurbeyondthecurrenttermsofelectedgovernments.Itisarepresentationofalong-termcommit-ment.Thetermsoftheprotocolmaybeasspecificorvagueasthepartiesprefer,includ-ingwhethertheagreementisintendedtobebindingornon-binding.Generally,acommunicationsprotocolwilloutlinethefollowingbasicideas:
Date and Parties:Signatoriesandwhentheagreementwascreated.
Whereas:Generalstatementswhichoutlinewhycooperatingorcommunicatingareimpor-tant,statementsrecognizingjurisdictionandrights,anyotherstatementswhichreflectthegeneralfeelingofthedocument.
Now therefore parties agree to the following:• Purpose and objectivesoftheagreement• Principles and values:Toguidethe
relationship(e.g.,fairness,transparency,respect,recognition)
Key interests:topicsofmutualinterest/concern(e.g.,serviceagreements,roads,environmentalsustainability,youthengagement,planning)
Process: • frequencyofpolicyandadministrative-
levelmeetings• creationofimplementationcommittees
orworkinggroups• engagementbetweenadministrativeand
technicallevels• howtoshareandsafeguardinformation• howmeetingswillbechaired• howagendaswillbeproduced• theprocessfordecisionmaking• time/locationofmeetings
Dispute resolution:Whattodowithmisinterpretationordisagreement(refertoADRintoolkit)
Terms:howdocumenttakeseffect,howitgetsrevisedoramended,howlongitisvalidfor
Signatures:who,when,where
Acommunicationsprotocolmustbetailoredtomeettheuniqueneedsofbothcommuni-ties;sectionsmaybeaddedtoordeletedfromthetemplate(below)asnecessary.
Note: Thetemplateprovidedisnotalegaldocumentandisintendedforguidancepurposesonly.
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THISCOMMUNICATIONSPROTOCOLmadeeffectiveasof[date]
BETWEEN: [Name of First Nation or Municipality]
[Address]
(hereinaftercalledthe“FirstNation”/“Municipality”)
AND: [Name of First Nation or Municipality]
[Address]
(hereinaftercalledthe“FirstNation”/“Municipality”)
(collectively,the“Parties”)
WHEREAS:A. ThisCommunicationsProtocolisdesignedtoestablishapositiveworkingrelationship basedoncommonlocalinterests.B. Goodcommunicationisessentialformaintainingaworkingrelationshipandreaching mutualagreementonanysubject.C. ThePartiesrecognizethatworkingtogetherpursuanttoacooperativegovernment-to- governmentrelationshipwillfacilitatethesharingofinformation,improvecommunications, andestablishasolidfoundationforfutureplanning.D. ThereisvaluetobothPartiesinworkingtogetheronanumberofpracticalitemsin eachcommunity.
1.0 GOVERNING PRINCIPLES OF COMMUNICATION
1.1 TheCommunicationsProtocolrepresentsthattheFirstNationandtheMunicipality shallworktogetherwithmutualrespectandrecognition.
1.2 ThePartiesagreetoopenandfrankcommunicationswitheachotheronareas ofmutualinterest.
1.3 ThereisacommitmentbytheFirstNationandtheMunicipalitytomeet[on an ongoing basis, at least quarterly, or more frequently as desired]todiscussissues ofcommonconcernandinterest.
2.0 JURISDICTION
2.1 ThePartiesendeavourtounderstandandrespecteachParty’spresentandfuture jurisdictionandeachother’suniquepointsofview.
UNIT 2
Communicationsprotocoltemplate
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3.0 TERM AND TERMINATION
3.1 ThisProtocolwillremainineffectuntil[Date]oruntilreplacedbythePartieswitha successoragreementoristerminatedbyoneofthePartiespursuanttosection3.2;
3.2 ThisProtocolmaybeterminatedbyeitherPartyon[Numberofmonths]monthsprior writtennoticetotheotherParty.
4.0 MUTUAL CONFIDENTIALITY
4.1 EachPartywilltakeallprudentmeasurestoensurethatanyinformation,including traditionalknowledge,documents,reportsorothermaterial(hereinaftercalled “information”)providedbyittotheotherPartypursuanttoorinconnectionwith thisCommunicationsProtocolistreatedasconfidentialandisnotdisclosedtoany personexcept:
a.asmayberequiredbylaw; b.asotherwiseconsentedtoinadvancebytheotherParty.
4.2 WithoutlimitingthegeneralityofSection4.1,eachpartyagreesthattoensurethe foregoingconfidentialityobligationismet,itwill,fromtimetotime,eitherinwriting orverbally,expresslyidentifyinformationasconfidentialornon-confidentialtoassist theotherPartyinfulfillingitsconfidentialityobligation.
5.0 REPRESENTATIVES
5.1 ThePartiesacknowledgeandagreethattheyshalleach,within30daysofthe signingoftheProtocol,appointaprincipalrepresentativewhoshallinitiallybe [Positioninthebandgovernment;e.g.,Chief]fromtheFirstNationand[Positionin themunicipalgovernment;e.g.Mayor]fromthemunicipalityaswellasanalternative representativetoactonbehalfoftheprincipalrepresentativeintheeventthe principalrepresentativeisunavailable.
6.0 COMMUNICATIONS FUNCTIONS
6.1 ThePartieswilldedicatetheresourcesnecessarytoengageeffectivelyintheprocess andwillworktogethertoensurethatthepartiesgaveafullunderstandingofeach other’scapacities,traditionalroles,responsibilities,andcurrentprojects.
6.2 ThePartieswillmakebesteffortstoensurestaffresourcesareavailableto implementthisCommunicationsProtocol.
7.0 PUBLICITY
7.1 ThePartiesacknowledgeandagreethatallcommunicationregardingthis CommunicationsProtocolandthematterssetouthereinwillbejointlyagreed uponpriortoanypublicreleases,subjecttoeachParty’srespectivelegalrights.
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UNIT 28.0 AMENDMENTS
8.1 ThisCommunicationsProtocolmaybeamendedfromtimetotimebywritten agreementbyboththeMunicipalityandtheFirstNationtoreflectchangesin therelationshipbetweentheparties.
9.0 NOTICE
9.1 Theaddressfordeliveryofanynoticeorotherwrittencommunicationrequiredor permittedtobegiveninaccordancewiththisAgreement,includinganynotice advisingtheotherPartyofanychangeofaddress,shallbeasfollows:
(a)toMunicipality: [ProvideAddressincludingtheattentionthelettershouldbedirectedtoandother relevantcontactinformation]
(b)toFirstNation: [ProvideAddressincludingtheattentionthelettershouldbedirectedtoandother relevantcontactinformation]
9.2 Anynoticemailedshallbedeemedtohavebeenreceivedonthefifth(5th)business dayfollowingthedateofmailing.Bynoticefaxedoremailedwillbedeemedtohave beenreceivedonthefirst(1st)businessdayfollowingthedateoftransmission.For thepurposesofSection9.2,theterm“businessday”shallmeanMondaytoFriday, inclusiveofeachweek,excludingdaysthatarestatutoryholidaysintheProvinceof [nameofprovince].
9.3 ThePartiesmaychangetheiraddressfordeliveryofanynoticeorotherwritten communicationinaccordancewithSection9.1.
10.0 GENERAL TERMS
10.1 ThisCommunicationProtocoldoesnotaffectanyAboriginalright,titleorinterestof theFirstNation.
10.2ThisCommunicationProtocoldoesnotprejudiceoraffecteachoftheParties’respec- tiverights,powers,dutiesorobligationsintheexerciseoftheirrespectivefunctions.
10.3ThisCommunicationProtocolisinadditiontoanyotheragreementsthatalreadyexist betweenthePartiesandisnotintendedtoreplaceanysuchagreement.Itisin- tendedtoindicatetheParties’intentiontoworkco-operativelytogethertoresolve issuesofmutualconcern.
10.4ThePartiesagreethatitisnotintendedtobealegallybindingagreement,exceptfor theobligationsinSection4.1above.
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INWITNESSHEREOFthePartieshavesignedtheCommunicationsProtocoleffectiveasofthedatefirstwrittenabove.
By:
___________________________________________________________________________________
[Signature]
PrintName: ______________________________________________________________________
Title/Position: ______________________________________________________________________
By:
___________________________________________________________________________________
[Signature]
PrintName: ______________________________________________________________________
Title/Position:______________________________________________________________________
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UNIT 21.8 Relationship building references
Fact Sheet: Top Misconceptions about Aboriginal PeopleAssembly of First Nations (AFN)
ThisdocumentisaconciseguidetoaddressingcommonmythsandstereotypesaboutAboriginalpeopleinCanada.Italsocontainsalistofresourcesforfurtherinformation.
Building Bridges Together: A Resource Guide for Intercultural Work between Aboriginal and Non-Aboriginal Peoples SPARC BC
Thispublicationofferstipsforaddressingracismandstereotypingininterculturalrelationships.Toolsandquestionstohelpbetterunderstandhowtheseissuesaffectrelationshipsarepresentedthroughoutthedocument.Anumberofcasestudiesregardingovercomingobstaclesinrelationship-buildingareshowcased.
Towards Sound Government to Government Relations with First Nations: A Proposed Analytical Tool Institute On Governance, John Graham and Jake Wilson
Thepurposeofthispaperistoanswerthequestions“Whatconstitutesgoodgovernment-to-governmentrelationshipswithinCanada’sfederalsystem?”and“HowdoestheunderstandingofsucharelationshiphavetobemodifiedorrefinedtoaccountforthespecialplaceofFirstNationsinCanada?”Byaddressingthesetwoquestions,thedocumentprovidespartieswithatooltoanalyzemoreeffectivelytheinitiativesbeingproposedbygovernments.ThistoolprovidesaseriesofcriteriaandrelatedquestionsorganizedaroundfivegoodgovernanceprinciplesthatarebasedonworkdonebytheUnitedNationsDevelopmentProgram(Fairness,Direction,LegitimacyandVoice,Accountability,andPerformance).
Building Trust: Capturing the Promise of Accountability in an Aboriginal ContextInstitute On Governance
Thispaperdiscussesgovernmentalaccountability.
Aboriginal Awareness Workshop: Guide to Understanding Aboriginal Cultures in Canada Indian and Northern Affairs Canada (now called Aboriginal Affairs and Northern Development)
ThisbookletprovidesbackgroundinformationaboutAboriginalhistory,cultureandcommunitiesinCanada.SomeinformationcoveredinthisresourceincludesAboriginalperspectivesonhistory,Aboriginalandtreatyrights,Aboriginalconstitutionalmattersandguidelinesforcommunicatingacrosscultures.Individualmodulesofthisguidearealsoavailableforthefollowingprovincesandregions:Alberta,AtlanticCanada,BritishColumbia,Manitoba,NorthwestTerritoriesandNunavut,Ontario,Saskatchewan,andQuebec.
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Aboriginal Awareness Guide Indian and Northern Affairs Canada, (now called Aboriginal Affairs and Northern Development) BC Regional Office
ThisdocumentprovidesbasicinformationaboutsensitivityandculturalawarenesswhenworkingwithAboriginalpeople.Tipsoncommunication,storiesandapronunciationguideforallFirstNationsinBritishColumbiaareincluded.
First Nations Communication Toolkit Indian and Northern Affairs Canada (now called Aboriginal Affairs and Northern Development)
Thistoolkitcontainstipsforcreatingacommunicationsstrategyanddevelopingcommunicationsstrategycomponentsincludingmediareleases,communitymeetingsandengagement,andcommunicationsplanning.
Building Relations with First Nations: A Handbook for Local GovernmentsLower Mainland Treaty Advisory Committee (LMTAC)
Thishandbookprovidesaconcisesummaryofreferencepapers,reportsandexamplesthatexplorenewandinnovativeapproachestoestablishpositiveintergovernmentalrelationsbetweenneighbouringFirstNationsandlocalgovernments.
Alberta Native Friendship Centres Association Common Ground Facilitators ToolkitAlberta Native Friendship Centres Association
TheCommonGroundProjectisarelationship-buildingeffortthatisbasedontraditionalAboriginalperspectives,customsandprocessesdesignedbytheAlbertaNativeFriendshipCentresAssociation.AlthoughitsfocusisonmunicipalitiesengagingurbanAboriginalpopulations,itprovidesgreatresourcesforcommunityengagement,relationshipbuilding,andworkingwithavarietyofstakeholdersinacommunityenvironment.
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UNIT 2
2. Municipal and First Nations governance structures
2.1 Similarities and differencesByexaminingeachsystemofgovernanceandtheservicesthateachgovernmentprovidestotheircommunitymembers,itisclearthatFirstNationsandmunicipalitieshaveseveralkeysimilarities.Thesesimilaritiesmakecollabora-tionaneffectivewaytoensurecommunitiesareachievingtheirgoals.
CommunitiesacrossCanadahavesimilarproblemswithurban–ruraldivide,andthecapacityandfundingthatisdictatedbycom-munitysizeandremoteness.Forurbanmunic-ipalitiesandFirstNations’bandcouncilsareincreasinglypartneringintheirurbanareas.Bandcouncilsoftenhavecommoninterestsinissuespertainingtotheenvironment,provision
ofservices,andland-useplanning.Munici-palitiesandFirstNationshavemanyparallelgovernmentstructuresandareresponsibleforprovidingmanyofthesameservicestotheirresidents.Thismakescollaborationforservicesareasonableoptionfordelegatingresponsibilitiesandachievinggoals.
Thefollowingchartprovidesaquicksummaryofsimilaritiesanddifferencesingovernancestructures.Formoreinformationaboutspe-cificgovernancestructures,pleaseseeUnit 2, Chapter 2.2: Municipal governance structures,Unit 2, Chapter 2.3: First Nations governance structures,andUnit 2, Chapter 2.4: Governance structure references.
TobegintounderstandhowFirstNationsandmunicipalitiescanworktogethertoprovideservices,itisnecessarytounderstand:
• Thebasicstructureofthegovernment• Thelevelofauthoritywithinthegovernment• Thefunctionsofthegovernment• Theservicesthatthegovernmentcanprovide• Therevenuesourcesofbothformsofgovernment
ThissectionclarifiesrolesandresponsibilitiesandprovidesacomparisonbetweenFirstNationandmunicipalgovernmentssothatserviceagreementscanbeapproachedmoreeffectively.
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Table 2: First Nations versus municipal government structures and services
Source:CommunityInfrastructurePartnershipProgram,CIPP,January2011.
First Nations Municipality Comparison
Legislation federalIndian Acttreatiesself-government
provincialmunicipalacts
Bothresponsibilitiesdictatedbyahigher-levelbody,whetherthatbetheprovincialgovernmentandmunicipalacts,orthefederalgovern-ment,treaties,andtheIndian Act.
Local government bandcouncil municipalcouncil Bandcouncilsandmunicipalcouncilsplayasimilarroleintermsoftheirdecision-makingauthority.
Head of local government Chief MayorReeveChiefElectedOfficial
ChiefsandMayorsplayasimilarroleintermsoftheirdecision-makingauthority.
Regional governance tribalcouncil regionaldistrictcommissionmetropolitancommunity
Bothmaypartnerwithothergovern-mentstoformregionalbodiestodiscussissuesofmutualconcern.
Head of administration Bandmanager ChiefAdministrativeOfficer(CAO)
FirstNationsandmunicipalgovern-mentsrelyheavilyontheirrespectiveadministrationsfornecessaryprogramdeliveryandsupport.
Services provided animalcontrolbandcouncilresolutionsbusinesslicensingelectionsestablishmentofuserfeesfireprotectionforestprotectionhousingmaintenancehuntingandfishingregulationimmunizationandquarantineland-useplanninglawandorderleaselandmanagementmanagementofintoxicantsresidentialregulationroadandbridgeconstructionsolidwastecollectionstormwaterstreetlampssurveyoflandstaxationtrafficcontrolwaterandwastewaterzoning
animalcontrolbylawscemeteriescommunityprogrammingemergencyplanningfireprotectionlandmanagementlocalroadsmanaginglocalelectionsparksandrecreationplanningpolicingpreparationofbudgetspubliclibrariespublictransitregulation(buildingpermits)sidewalkssnowremovalsolidwastecollectionstormwaterstreetlampssurveyoflandstaxationwaterandwastewaterzoning
MunicipalitiesandFirstNationsexperienceagreatdealofautonomy.Thisintermsofestablishinglocalprioritiesandmakingdecisionsonthebestwaytoprovidetheircommunitieswithnecessaryservicesandensuringresidents’well-being.FirstNationsandmunicipalgovernmentsprovidekeyservicessuchaswaterandwaste-water,solidwastemanagement,fireprotection,andland-useplanning.
Akeydifferenceintermsoflawenforcementisthatmunicipalitieswilloftencreatebylawstotailorlawstolocalneedsandconcerns.Thedecisiontopassthebylawliesstrictlywiththemunicipalcouncil.AFirstNationwillmorefrequentlypassbandcouncilresolutionsastheymaybepassedsolelywiththeapprovalofthebandcouncil.However,bylawsmustbesubmittedtoAboriginalAffairsandNorthernDevelopment(AANDC)forapprovalandarethusmuchmoretime-consumingandtedious.
Funding federal(transfers,fundingagreements)tribalcouncilsorganizations(grants)
taxationprovincialtransfersorganizations(grants)federalgrants
FirstNationsandmunicipalgovern-mentsareresponsibleforensuringthattheirinitiativesarebackedbyfunds,whetherthatisthroughtaxa-tion,userfees,ortransferpaymentsfromothergovernmentbodies.Allmunicipalitiesreceivethemostsignificantsourceoffundingfrompropertytaxesandbusinesstaxes.However,notallFirstNationshavechosentotaxtheirmembersorchargesimilarratesofuserfeesforservices.
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UNIT 22.2 Municipal governance structuresThewaymunicipalitiesarereferredtovariesgreatlyfromprovincetoprovince.Theycanbedefinedasanylocalgovernmentbelowtheprovinciallevelwiththemostsignificantbeingamunicipality.Someothercommonexamplesincludecities,towns,regionaldistricts,town-ships,andmetropolitanmunicipalities.Acrossthecountry,closeto3,700municipalauthori-tiesdeliverservicestolocalcommunities.
2.2.1 MunicipalactsandministriesEachprovinceisresponsibleforitsmunicipali-tiesandorganizesthosemunicipalitiesunderaprovincialMunicipalAct,whichoutlinestherolesandresponsibilitiesofmunicipalgovern-mentsinrelationtotheprovincialgovernment.
Duetothisarrangement,municipalstructuresdifferdependingontheprovince.However,eachprovincehasalegislativeassemblythatisresponsibleforcreatingmunicipalities,alter-ingbordersandmodifyinglegislation.Eachprovincehasaministrythatisresponsibleformunicipalaffairs,whichincludesenforcinggeneralrulessurroundingmunicipaloperationsandtaxation.
2.2.2 MunicipalcouncilsMayor, Reeve or Chief Elected OfficialTheheadoftheelectedmunicipalcouncilcanbereferredtoasaMayor,Reeve,Chiefelectedofficial,orheadofcouncildependingontheprovince.Insomecases,namesdifferwithintheprovince.Inthisdocument,werefertothispositionastheMayor.TheMayorisheadofthemunicipalcouncil,althoughheorshehaslittleindependentcontrol.Mayorschairallmeetings,canattendanyspecialcommitteemeetingsandmayproviderecommendationstocouncil.Mayorsactasthespokespersonandasthefigureheadofthecouncilandmunicipality.TheMayoriselectedbythecommunityatlarge.
Municipal councilThemunicipalcouncilsareresponsibleforavarietyofservicesincludingtransportation,roadmaintenance,parksandrecreationfacilities,land-useplanning,localeconomicdevelop-ment,wastewatertreatment,potablewaterprovision,solidwasteandrecyclingprograms,somesocialservices,educationandinsomecaseslocalhealthservices.Theyalsohavethepowertosubcontractaservice.Forexample,thecitycouldhireaprivatecompanytocollectwasteratherthanrunningitsownwastecollec-tionprogram.Everymunicipalcouncilwillhavedifferentprioritiesorfocusareasbasedonlocalneeds,currentprovincialpoliciesandlocaltraditions.
Inmanycases,themunicipalcouncilwillformaseriesofcommitteesthatareresponsiblefordirectingmunicipalpublicservice.Thenumberofcommitteeswillbecompletelydependentonthesizeofthemunicipalityandthemunicipal-ity’sneeds.Thecouncillorsoneachcommitteewillreportbacktothemunicipalcouncilandmakerecommendations.
MunicipalcouncilsincludetheMayorandcouncillorsforamunicipality.
CouncillorsCouncillorsareelecteddifferentlyineachmunicipality,buttherearetwoprimaryways.Inthefirstsystem,municipalcouncillorsareelectedatlarge.Thismeansthatallvoterswithinamunicipalboundarywillselectapredeterminednumberofcouncillorsoutofallofthecandidatesintheentiremunicipality.Forexample,iftherearesixcouncillorpositionsandtencandidatesrunningintheelection,thesixcandidateswiththeoverallhighestnumberofvoteswillgetthepositions.
Thesecondsysteminvolvespartitioningthemunicipalityintowardsorsections.Eachwardmayhaveoneorinsomecasestwocouncil-lors.Votersineachwardmayonlyvoteforthecandidateswhoarerunningforelectionin
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theirward.Thecandidate(s)withthehighestnumberofvotesineachwardwillformthemunicipalcouncil.
Regional district councilsRegionaldistrictcouncilsaremadeupaseriesofelectedmunicipalofficialsfromseveralmunicipalitieswhohavebeenappointedtorepresenttheirmunicipalityontheregionaldistrictcouncil.Insomecases,individualmunicipalitiesmayhaveaseparateelectiontochoosewhoshouldrepresentthemunicipalityattheregionallevel.Regionaldistrictcouncilshaveavarietyofresponsibilitiesastheyrelatetotheoverallwell-beingoftheregion.Forexample,thiscouldincludemedium-andlong-termplanningforinfrastructure,watermanagement,publicsafetyandregionalroads.
Special authoritiesSpecialauthoritiesaremoreautonomousthanaregionaldistrictcouncil.Municipalitieswillvoluntarilycooperateonspecificissueswherecommoninterestsaresharedandresourcescanbepooledtomakeformoreeffectiveservicedelivery.Inmanycases,authoritieswillexistforsolidwastecollection,recyclingandhazardouswasteprograms,andpublictransit.Aboardofdirectors,madeupofelectedof-ficialsfromtheparticipatingmunicipalities,controlsspecialauthorities.
Metropolitan community councilsMetropolitancommunitycouncilsconsistofseveralmunicipalitiesandarethereforehead-edbyacouncil,whichismadeupofelectedofficialswhohavebeenappointedtorepresenttheircommunity.Metropolitancommunitiesareresponsibleforpoliciesrelatedtoregionalplanning,economicdevelopment,solidwaste,publictransitandequipmentandinfrastruc-tureforthemetropolitancommunity.MetroVancouverRegionalDistrictandtheQuebecMetropolitanCommunityareexamplesofmetropolitancommunities.
2.2.3 MunicipaladministrationTheMayorandcouncilensurethecreationofpolicyandsteerthedirectionofthemunici-pality.However,themunicipaladministrationisresponsibleforensuringthatalltheservicesandactivitiesthatthemunicipalitymustordecidestoundertakeareadministered.Theemployeeswhomakeupamunicipaladministrationhaveawidevarietyofskillsets.Theyincludeaccountants,firefighters,publicworkspersonnel,communityplanners,animalcontrolstaff,secretaries,engineers,truckdriv-ersandrecreationdirectors.
Chief Administrative Officer (CAO)TheChiefAdministrativeOfficerisresponsibleforensuringthatallpoliciesandservicesaredeliveredsmoothly.SometasksthataCAOmayhavearedrawingupbylaws,preparingagendasandminutes,publishingofficialnoticesandprovidinginformationtothepublic.TheCAOactsastheconnectionbetweentheMayor,councilandthemunicipaladministration.Theyalsomayprovideadvicetothecouncilandrepresentthecouncilinne-gotiationswithothergovernmentsoragencies.
2.2.4 MunicipalservicesEachprovincehasamunicipalact,whichdefinesspecificallywhichserviceseachmunicipalityisresponsiblefor.Itisoftendifficulttocompletelydelineatewhichrespon-sibilitiesareheldsolelybythemunicipalityorwhatshouldbetakencareofbytheprovincialorterritorialgovernmentsorthefederalgov-ernment.ThelevelofserviceprovidedbyeachmunicipalityvariesgreatlyacrossCanada.Itiscompletelydependentonthesizeofthemunicipalityandwhatlevelofservicesthemunicipalitymayafford.Forexample,somemunicipalitiescanaffordafull-timefiredepartmentwhilesmalleronesmayhaveavolunteerfiredepartment.Afulllistofser-vicesisprovidedinTable 1inUnit 2, Chapter 2.3: First Nations governance structures.
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UNIT 2Shared municipal and provincial servicesSomeservicesaresplitbetweentheprovinceandthemunicipality,althoughsomeprovincesstipulatethatthemunicipalityortheprovincealoneisresponsibleforthefollowingservices.Forthemostpart,theseservicesareareasofjointresponsibility:
• emergencyresponseandambulanceservices
• preservationofagriculturallands• policingservices
2.2.5 MunicipalfundingTaxation Municipalities,unlikethefederalandprovincialgovernmentscannotchargepersonalincometaxandtaxesoncorporations;therefore,municipalitiestaxpropertywithintheirbound-ariesasasourceofrevenue.Localauthoritiessettaxratesbasedontheiraverageannualex-pendituresandthereforepropertytaxratesvarygreatlyacrossCanada.Municipalitiesalsomaychargemunicipaltaxestocoverthecostofser-vices(suchassolidwastecollection,recyclingandsnowremoval)oronapay-per-usebasis(suchasentrancefeestoarecreationfacility).
Transfer paymentsMunicipalitiesalsoreceivetransferpaymentsfromtheprovincialgovernment.Insomecasesthepaymentscanbeusedasthemunicipalitydeemsappropriate.Inothercasesfundingmaybegrantedtothemunicipalitywithspecificprogramsandgoalsinmind.
2.3 First Nations governance structuresToday,thestructureoftheChiefandcouncilgovernanceonFirstNationsreservesreflectsthechangesenforcedbytheBritishandCana-diangovernmentssincethe19thcentury.ThisstructurebecameformalizedintheIndian Act.Sincetheinitialformalization,bandcouncilstructuresareincreasinglyflexibleintermsoftheextenttowhichtraditionalpoliticalstructuresanddecision-makingprocessesareobservedandthetypesofissuesthatbandcouncilsdealwith.
Duetotherelativeflexibilitythathasbeenrealized,FirstNationsgovernancestructuresvarygreatlyacrossCanada.Whilesomeexistwithminimalgovernance,othersarecompletelyself-governing,althoughmostfallsomewhereinbetween.
Today,manyFirstNationcommunitiesmanagemultimillion-dollaradministrativeoperationsthatdeliverservicesintheareasofeconomicdevelopment,health,housing,publicworks,recreation,educationandsocialservices.
2.3.1 TheIndian ActTheIndian ActoutlinestheprocedureforselectingaChiefandcouncil.TheActdoesnotprovideaframeworkfortheseparationofpoliticalandadministrativefunctionsinabandnorthewayinwhichfinanceswillbemanaged.FirstNationsmustdealwithgrowingrespon-sibilitiesinbandadministration,increasedpressuresoftransparencyandaccountabilityandincreasedcomplexityingovernance.Thiscausesafairamountofdiversityinthewaysinwhichbandsarerunbasedonbandpolicyanduniqueadministrativeorganization.
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2.3.2 ChiefandcouncilBandcouncilregulationsareoutlinedinSection74oftheIndian Act.AccordingtotheIndian Act,eachbandwillhaveoneChiefwhoiselectedeitherbymajorityvotebythecommunityatlargeorbymajorityvoteoftheelectedcouncillors.AfteraChiefiselected,heorsheisstillconsideredacouncillorandisabletovoteincommunityaffairs.Councillorsmaybeelectedbythecommunityatlargeorbyelectoralwardsorsections.Bydefault,allbandsvoteatlargefortheircouncilmembers,unlessaband-widereferendumwasheldtodeterminethatthereserveshouldbedividedintowardsorsections.AccordingtotheIndian Act,theremustbeatleastonecouncillorforevery100bandmembers,althougheachbandcouncilmayhaveaminimumoftwocouncillorsandamaximumof12councillors.
Chiefandcouncilareelectedfortwo-yeartermsinaccordancewiththeIndian Act.AccordingtoAboriginalAffairsandNorthernDevelopmentCanada(AANDC),therearethreewaysinwhichaChiefandcouncilmaybeselected:usinganelectionprocessoutlinedintheIndian Act(252bands);usingacustomsystemthatwasdevelopedbythecommunity(333bands);andfinally,usingasystemthatwasdevelopedunderaself-governanceagreement(29bands).
Customsystemsmayrefertoeitherasystemofhereditaryleadershipinwhichnoelectionsareheldormayrefertoelectionprotocolsthathavebeendevelopedandratifiedbythecom-munity.Customsystemsmaynotbereflectiveofpre-Europeancontactformsofgovernance,butoftenprovidelocalcontextualizationoftheIndian Actprocesses.Somecommunitiesmaynothaveformalizedprotocols;theymaysimplyfollowasystemthatwasagreeduponinformallyandhasbeeninplaceformanyyears.
2.3.3 TribalcouncilsTribalcouncilsactasanimportantformofFirstNationsgovernance.Theyconsistofagroupingofbandsfromaregionwithsimilarintereststhatjointogetheronavoluntarybasis.TribalcouncilscanofferservicesandprogramstotheirmemberFirstNationsandmayformagreementswithotherfederalde-partmentssuchasHealthCanadaandNaturalResourcesCanada.
RepresentativesoftribalcouncilsareusuallyChiefsorelectedbandcouncilmembersandareextremelyflexibleastotheissuestheyaddress.AANDChasdevolvedmanyofitsadvisoryfunctionstotribalcouncilsandtheymayasaresultberesponsibleforeconomicdevelopment,comprehensivecommunityplanning,technicalservices,andbandgovernanceissues.FundingfromAANDCisbaseddirectlyontheservicesthatthetribalcouncilprovides.Thereareapproximately78tribalcouncilsacrossCanadaserving475FirstNations.
2.3.4 BandadministrationTheChiefandbandcouncilsteerthedirectionofthecommunityandmakedecisionsperti-nenttoacommunity’swell-being.However,thebandadministrationisresponsibleforensuringthatalltheservicesandactivitiesthatthecouncilmustordecidestoundertakeareadministeredtothecommunity.Bandadministrationemployeeshaveawidevarietyofskillsets.Theyincludefinancialexperts,firefighters,daycareworkers,publicworkspersonnel,communityplanners,animalcon-trolstaff,socialservicesdirectors,secretaries,engineersandtruckdrivers.
Band managerThebandmanageristheheadofthebandadministrationandisresponsibleforensuringthatallpoliciesandservicesaredeliveredsmoothlytotheFirstNation.Sometasksthatabandmanagermayhavearepreparing
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UNIT 2agendasandminutes,advisingthebandcoun-cil,publishingofficialnoticesandprovidinginformationtothepublic.ThebandmanagerworkscloselywiththeChief,councilandbandadministrationstaff.Heorshemayprovideadvicetothecouncilandrepresentthecoun-cilinnegotiationswithothergovernmentsoragencies.Occasionally,thebandmanagermayalsobeamemberofthebandcouncil.
2.3.5 SocialstructureEldersEldersaremenorwomeninthecommunitywhosewisdomaboutculture,spiritualityandlifeisrecognized.Communitymemberstradi-tionallyvaluetheinputofEldersinmattersre-latedtothecommunity,whethersuchmattersconcerntraditionalorcontemporaryissues.
2.3.6 BandservicesSection81oftheIndian Actoutlinestheresponsibilityofthebandcounciltoprovideservicestotheband.Italsodetailsthescopetowhichbandshavebylaw-makingauthorities;thissectionoftheIndian Actcontainsthemajorityoflocalresponsibilities.Section83,whichwaslateramendedwiththeKamloopsAmendment,expandsontheband’sabilitytotaxlands,leasedlandsandbusinesses.AfulllistofservicesoutlinedintheIndian ActisprovidedinTable 2inUnit 2, Chapter 2.1.
2.3.7 BandfundingTaxation and user feesSection83oftheIndian Actprovidesthatbandcouncilshavethepowertoestablishpropertytaxregimesonreserve.Tocollectpropertytaxes,thebandcouncilisrequiredtocreateseveralbylawsthatmustfirstbeapprovedbytheMinisterofAANDCupontherecommendationoftheFirstNationsTaxationCommission.ThebylawsthatmustbepassedincludetheRealPropertyTaxandAssessmentBylawandtheAnnualRatesBylaw.Becausethisisanoptionalsourceoffundingthatmust
beinstigatedbythebandcouncilofeachFirstNation,notallbandswillhaverevenuefrompropertytaxation.Currently,120FirstNationschargepropertytaxesacrossCanada.
Bandcouncils,underSection81oftheIndian Actalsohavetheabilitytoinstituteuserfeesforservicessuchaselectricity,water,waste-waterandsolidwastecollection.Theextenttowhichabandcouncildecidestochargeuserfeesvariesfrombandtoband.
Transfer paymentsAANDCprovidestransferpaymentstoFirstNationsgovernmentsfortheprovisionofprogramsandservices,whichtheFirstNationisresponsibleforprovidingtoitsresidents.Generally,thisfundingislinkedtofundingagreements,whichstipulatethespecifictermsandconditionsthatmustbemet.
Funding agreementsFundingagreementshavetermsandcondi-tionsattachedtothemthatmayincludestipulations.Thesecouldincludetheprovisionofrecords,financialreporting,programreport-ingandprovisionofspecificprojectgoalsandrequirements(e.g.,policydevelopmentandtraining).
Contribution agreementAcontributionagreementisanagreementun-derwhichthepartythatundertakesthework(providestheservices,etc.)receivesarefundofactualexpendituresforaspecificproject.
Flexible transfer agreementAflexibletransferagreementisanagreementwherefundingisprovidedinadvanceofaproject’scompletion.Thebandmayretainanysurplusfundingprovidedthatthetermsandconditionsoftheagreementhavebeenfulfilled.
GrantAgrantisanunconditionaltransferoffundsfromthefederalgovernmenttoanindividualband.
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2.4 Governance structure references
First Nations Governance Aboriginal Affairs and Northern Development
ThiswebsiteprovidesmoreinformationaboutFirstNationsgovernancestructuresinCanadaandexplainswhichfunctionsofFirstNationsgovernmentsaresupportedbyAANDC.AdditionalinformationabouttribalcouncilsandotherformsofFirstNationsgovernancecanbeexploredbyfollowingthelinksprovidedonthewebsite.
Your Guide to Municipal Institutions in Canada Federation of Canadian Municipalities
ThispublicationprovidesanoverviewoftherolesofmunicipalgovernmentsacrossCanadaandprovidessomeprovince-to-provincecomparisonsonthewaymunicipalitiesaremanaged.Informationaboutroles,fundingandservicesarediscussed.
Local Government in British Columbia: A Community Effort Union of British Columbia Municipalities
ThispublicationprovidesanoverviewoftherolesofmunicipalgovernmentsinBritishColumbia.Informationaboutroles,fundingandservicesarediscussed.
Interactive Map — First Nations Communities in Canada Aboriginal Affairs and Northern Development
ThismapincludesallFirstNationscommunitiesinCanadaandincludesreserveboundariesand,whenzoomedin,thenamesofthecommunitiesinthearea.Youcanclickareservenametoviewthatcommunity’sprofile,whichincludespopulation,Chief,electoralsystem,addressandlinkstobandwebsitesandotherwebsitesofinterest.Youcanalsoclickthelink,FirstNationProfile,toviewthetelephoneandfaxnumbers.
First Nations of Ontario Community Profiles Chiefs of Ontario
ThiswebsiteprovidesavarietyoffactsaboutmostoftheFirstNationsinOntario.AlthoughmoststatisticsarealsoavailableontheAANDCcommunityprofileswebsite,thissiteprovidesprofilesofserviceagreementsandotherareasofcooperation(education,forexample)withneighbouringcommunities.
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3. Collaborative dispute resolution
3.1 PreventionEstablishingaproactiverelationshipatthebeginningofarelationshipbyaddressingtheinterestsofbothcommunitiesshouldbethefirstpriority.Thiscanhelpcommunitiesavoiddisputesandstrainstotheirrelationship.Themostcommonandeffectivemethodsforpreventingpotentialconflictsareasfollows:
Consensus building
WhenworkingwithamunicipalorFirstNationpartner,theobjectiveshouldbethatbothpartiesworkonconsensus-baseddecisionswhilerelationshipsandserviceagreementsmoveforward.Byensuringthatallpartiesareonthesamepageandbynegotiatingeachissuewithinthegroup,resentmentthatcoulddevelopbymajorityvotingprocessescanbe
avoided.Althoughconsensusbuildingisinitiallymoretime-consuming,itmaysavetimeinthelongrun.
Negotiated rule making
Negotiatedrulemakingmeansagree-ingonproceduresforhowdiscussionswilltakeplace.Someexamplesincludehowoftenmeetingswilloccur,howtheagendawillbesetandhowdecisionswillbemade(e.g.,throughconsensusorbyvoting).Bynegotiatingrules,information-baseddisputesareleastlikelytooccur.
Joint problem solving
Jointproblemsolvinginvolvesaddress-ingallissuesthatariseinanopenandtimelymanner.Bybringingconcernstothetable,allpartiesare,attheveryleast,awareofproblemsthatneedtobead-dressedbeforetheygetoutofhand.
MunicipalitiesandFirstNationsshouldhaveagoodunderstandingoftheprinciplesofdisputeresolution.Theseprincipleswillhelpthemtoworkthroughdisagreementsinaneffectivemannerwithoutdamagingtheirrelationshiporreversinganystepsaccomplishedintermsofcooperationandtrust.
Disputeandconflictresolutionprovideexcellentopportunitiesforindividualstoworktogether,brainstormnewideasandmakeimprovementstoexistingstructures.However,theabilityofagrouptorecoverfromdisagreementsisdirectlylinkedtotheirwillingnesstoparticipateinavarietyofmethodstoachieveapositiveoutcome.
Thischapterprovidescollaborativedispute-resolutiontipsandresourcesforcommunitiesnomatterwhichofthefollowingstagesofserviceagreementdevelopmenttheyareat:relationshipbuilding,negotiatingtheserviceagreementterms,implementingtheagreementorduringtheserviceagreementrenegotiationprocess.
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Consultation and engagement
Theconsultationprocessisoftenpartofaregulardecision-makingprocess.Itisalsoadispute-preventionmechanismasitcanensurethatallpartnersandcommunitiesareawareofthedecisionsbeingmadeandthattheyhaveachancetovoicetheirconcerns.Consultationisthebasisofavarietyofproceduresreferredtoaspublicconsultation,publicparticipationandpublicinvolvement.Methodsofconsulta-tionrangefromformalpublichearingstomoreengagingorinteractivetechniquessuchasworkshopsandadvisorycommit-tees.Thefinaldecisionmakingisuptothepartiesinvolved—andiftheresultsfromconsultationaretakenseriously,thenegotiationmethodcanpreventcom-munitiesfromfeelingalienatedfromthedecision-makingprocess.Consultationprocessesoftenleadtohighexpectationsonthepartofthepartiesbeingconsulted.Theymayalsoleadtofeelingsofrejectionorabuseiftheconsultedpartiesfeelthattheirconcernshavenotbeenheard.
Cross-cultural awareness
Disputescanoccurduetoculturalmisunderstandingormisinformation.Bybuildingcross-culturalunderstandingbetweencommunities,thesedisputesarelesslikelytooccur(pleaseseeUnit 2, Chapter 1.5: Cross-cultural awareness.)
3.2 Alternative dispute resolutionAlternativedisputeresolution(ADR)referstoanumberofmethodsthatpartiescanusetoassistintheresolutionofdisputesoutsidethecourtsystem.Theprocessesforeachmethodvaryintermsofthird-partyinvolvementandconsensusbuilding,andinhowbindingthedecisionandresolutionprocessis.
ADRhasseveraladvantagesovertraditionalformsofdisputeresolution.Itshighdegreeofinvolvementbythepartiesintheresolutionprocesscreatesownershipandmutuallyacceptableremedies.Thus,itpreventswinnersandlosers,whichoftenresultfromcourtsolutions.ADRprocessesareflexibleallowingdisputingpartiesagreaterabilitytoworkcreativelytowardsolutionsinaprivatesetting.AneffectiveuseofADRwillmakebothpartiesfeelasiftheyareactivelypartici-patinginthecreationandmaintenanceofpositiverelationships.
3.3 Mechanisms and methods for dispute resolutionDespitebesteffortstoworkpreventatively,conflictinevitabilityarisesinsomerelation-ships.ThedisputeresolutionprocesscanbeplottedonacontinuumasshowninFigure 1.Ideally,partiesshouldworkfromtheleftsideofthecontinuumtotherightsidewhenbuild-ingrelationships,settingthetermsofserviceagreementsandthenrenegotiatingorresolv-ingdisputesresultingfromthetermsofaserviceagreement.Thismeansworkingthroughparty-baseddecisionmakingtothird-partymediationandfinallytothird-partybindingassessmentofconflicts.Remember,ifanADRprocessmustbeused,theobjectiveshouldnotbetosuppressconflict,buttoresolvecurrentconflictandpreventfutureconflict.
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ThefollowingdefinitionsaretohelpguideyouthroughtheADRprocess.Thesedescriptionsareorganizedalongthelinesofthecontinuum(lefttorightinthediagramabove),andcanbesubdividedintothreeoverarchingapproaches:
• Directdiscussionandnegotiationoccursbetweenthepartieswithnothird-party-assistance.
• Thepartiesmakethird-party-assistednegotiationsanddecisions.
• Partiesprovideinputandaneutralthirdpartyprovidesajudgment(ruling)ornon-bindingfindings.
Byworkingthroughthedisputeresolutioncon-tinuuminthismanner,costscanbereduced,partiescanfeelmoreownershipindecisionsandfutureconflictislesslikelytooccur.
1. Direct discussion and negotiation occurs between the parties with no third-party assistance
BargainingBargainingreferstoaprocesswherebypartiesreachamutuallyacceptableagreement.Bar-gainingoftenoccursinformally.Forexample,adecision-makingbodymaychoosetochange
itspositiontoachievethesupportfromtheotherpartytocreatemoreagreementwithinthegroup.Bargainingrepresentsthefirststepofaresolutionprocessasitcanoccurinformallywhileprovidingpartieswithasenseofownershipandcooperationintheresul-tantdecisions.However,thisprocessisnotalwayseffectivewhendealingwithdifficultorcomplexissueswherepartieshavepolarizedpositions.
NegotiationNegotiationisanexplicitformofbargaining.Negotiationsoccurwhenpartiesenterintoadirectexchange,typicallyinvolvingface-to-facemeetings,inanattempttofindsomeresolutiontotheirdifferences.Negotiationisbasedontheideathatallpartiesagreetoseekanoutcomeacceptabletoallinvolvedbyalteringpositionsandcompromising.Shouldnegotiationsfailtoresultinanagreement,aneutralthirdparty(e.g.,afacilitatorormedia-tor)maybeusedtoleaddiscussions.
Figure 1: Dispute resolution continuum
Source:AdaptedfromDisputeResolutionServices,AlbertaMunicipalAffairs.
PARTIES COME UPWITH A SOLUTION SOLUTION IS IMPOSED
INFORMAL PROBLEM SOLVING
MEDIATE LITIGATE
LEGISLATE
LOW COSTBUILDS RELATIONSHIPS
ENCOURAGES DIALOGUE
HIGH COSTDISCOURAGES RELATIONSHIPSDISCOURAGES DIALOGUE
ARBITRATENEGOTIATE
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2. The parties makes third-party-assisted negotiations and decisions
FacilitationFacilitationinvolvesanindependentthirdpar-tytohelppartiesunderstandeachother’scon-cernsinaneutralmanner.Facilitationdoesnotnecessarilyhavetobeadecision-makingprocessbutcanassistthepartiesinidentify-ingtheissues,theimpactoftheoptions,andthenextbestalternativesavailabletothem.Thisprocessisadvantageousbecauseitmayofferinsightsintoeachviewpointwithoutpressuretocometoadecision.
MediationMediationissimilartonegotiationbutin-cludestheassistanceofathirdpartyormedi-ator.Themediatormustbeindependentfromthepartiesandhavenovestedinterestintheoutcomeofthedispute.Partiesshouldselectamutuallyacceptablemediator.Theprocessofmediationinvolvesthreemaintasks:first,toestablishmediationprocessexpectations;second,torepresentandrelaytheinterests,concernsandideasofonepartytotheother;andfinally,occasionallyactasafacilitatorinjointdiscussionsessions.Themediatoronlyprovidesassistancetothepartiesastheyaddressdisputesandhasneitherdecision-makingpowersnorenforcementpowers.
3. Parties provide input and a neutral third party provides a judgment (ruling) or non-binding findings
Fact-findingFact-findingisaprocessthatenablesdisputingpartiestohavetheirconcernsexaminedbyaneutralthirdpartywhowillthenrecommendasettlementbasedonfacts.Underlyingthisprocessistheassumptionthatthejudgmentofanindependentpersonwillputpressureonthepartiestoaccept
acompromise.Thefact-findingprocessisusuallylessformalthanarbitrationbecausetheconclusionsofthefact-finderarenotbindingontheparties.Insomecases,fact-findingmayworsentheconflictasitmayleadtotheintroductionofadditionalissuesthatwerenotpreviouslyidentifiedasaproblem.
ConciliationConciliationisacombinationofthefact-findingandmediationprocesses.Typically,aconciliatororconciliationboardisselectedtoassistinthesettlementofadisputeandproducesareport.Thisprocesscanattempttosettledisputeswithoutbringingthedisputingpartiesintoajointmeeting.Instead,indepen-dentmeetingscanbeheldandinformationrelayedtodeliverpositionsinalesspoliticallyandemotionallychargedmanner.Ifthecon-ciliatororboardissuccessfulinmediatinganagreementbetweentheparties,theconciliatorreportdocumentsthesettlement.Iftheirset-tlementeffortsarenotsuccessful,thereportwillstillbetheconciliator’srecommendationsofasettlementandthenextsteps,whichissimilartoafact-findingreport.
ArbitrationArbitrationisaformaladjudicatedprocesswithanarbitrator,orinsomecasesapanelofarbitrators,actingasajudge.Disputingpar-tiespresenttheirargumentsandevidenceandthenthearbitratormakesadecisiononbehalfoftheparties.Thisprocessresultsinanindependentreviewofthefactsofthedisputebyanindependentthirdpartywhomakesaninformeddecisionbasedonthefacts,ratherthanonemotionsandpolitics.Arbitrationshouldbeusedonlyasalastresortforcom-plexandongoingdisputesasthearbitrationprocesstendstocreatewinnersandlosers.
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UNIT 23.4 Aboriginal perspectives on ADRIntheirdocumentDisputeResolutionSystems:LessonsfromotherJurisdictions,theInstituteonGovernancepresentedaninterestingperspectiveonnon-AboriginalversusAboriginalapproachestoconflictpreventionandapproachestosystemsofjustice.Admittedly,itisdifficulttogeneralizeaboutAboriginalperspectivesandapproachesbecausethereisgreatculturalvariationacrossCanada.However,acommonthreadseemstobetheemphasisonproactivemeasurestakentopreventconflictandtoensurethemainte-nanceofharmoniousexistence.
Whilenon-Aboriginalsystemsaredesignedtoaddressproblemsastheyarise,Aboriginalsystemstendtoreflectthemaintenanceofapeacefulsociety.RupertRoss,aCrownAttorneyreflectsthat,“Notbeingawareofthefactthatthetwospotlightsilluminatedifferentaspectsofthesameoverallproblem,weofthenon-AboriginalsystemarepuzzledwhenAboriginalresponsestoourjusticequestionsfailtoshedlightonthekindsofthingsthatweexpectedtosee,butshowusverydifferentthingsinstead.”Therefore,acceptablemea-suresforresolvingdisputeswillincorporatebothoftheseperspectivesonconflictandtheattainmentofjustice.
3.5 ADR references
Alternative Dispute Resolution: Aboriginal Models and Practices Michelle Cameron, Ministry of Children and Family Development
Thisdocumentdiscussesdifferentdisputeresolutionworldviewsandpointsoutthatcultureshouldneitherbeundervaluednorovervalued.BecausediversitymakesprovidinganAboriginalperspectivedifficult,theauthorsprovideanumberofcasestudies.Thesecasestudiesmostlyrelatetochildandfamilyservices,regardingtheintegrationofmoreculturallyappropriatemodelsintodisputeresolution.
Communities in Cooperation: A Guide to Alternative Dispute Resolution for First Nations and Local Governments in British ColumbiaFirst Nations Summit and Union of British Columbia Municipalities
Thisguideisintendedtoassistelectedofficials,stafforanypartyworkingwithmunicipalities,regionaldistrictsorFirstNationsgovernmentsinresolvingdifferenceswithoutresortingtothecourts.
A Review of Dispute Resolution for First Nations and Local Governments in BC Union of British Columbia Municipalities (UBCM)
ThisdocumentwasproducedbytheUnionofBCMunicipalities(UBCM)andtheFirstNationsSummit(FNS)inBritishColumbia.ItwascreatedtohelpFirstNationsandlocalgovernmentsavoidconflictwhenandwhereitmayarise,tohavetoolsavailabletothepartiestoefficientlyandeffectivelyresolvetheissuesinamannerthatservesthebestinterestsofthegovernmentjurisdictionsinvolved.
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Dispute Resolution Systems Institute on Governance (1999)
Thisdocumentprovidesanoverviewofthemajorthemesfoundintheliteratureofdirectrelevancetotheirtask,balancesthelessonsdrawnfromtheliteraturewiththoselearnedfromcasestudiesofdisputeresolutionsystemsandmakesrecommendationsonhowtheinformationdevelopedinthisstudycanbeputtobestuse.
Singing up the Sacred: Aboriginal Communities Train the Trainer in BC Sally Campbell
ThisdocumentdiscusseslessonslearnedfromworkingwithFirstNationsondisputeresolutionprocesses.Inparticular,thelessonslearnedaboutintegratingtraditionalpracticesandthedifferentqualitiesthatintegratingtheseapproachesbringstoagroupdynamic.
Dispute Resolution Systems: Lessons from other Jurisdictions The Institute on Governance
ThispaperoutlinesbestpracticesofdisputeresolutionbyprovidingaliteraturereviewandlessonsfromacrossCanada.ChallengeswithintegratingAboriginalperspectivesonADRintotraditionalformsofADRarediscussed.
ADR in an Aboriginal Context Canadian Human Rights Commission
ThisdocumentdiscusseschallengestointerculturalADRincludingdifferingworldviews,differentformsofknowledgeandhistoricaltensions.
Mediator Roster — British Columbia British Columbia Mediator Roster Society
ThiswebsiteprovidesalistofqualifiedmediatorsacrosstheprovinceofBCincludingcontactinformationandtheregionsoftheprovincethattheyarewillingtoserve.
Intercultural Dispute Resolution in Aboriginal Contexts Catherine Bell and David Kahane, University of British Columbia Press Available through Library and Archives Canada, free of charge
ThisbookisacollectionofessaysexploringtheopportunitiesandeffectivenessofADRalongsideitschallengesandlimits.ItcontainscontributionsfromAboriginalandnon-Aboriginaltheoristsandpractitioners.Thisbookisinternationalinscope,withexamplesfromInuitandArcticpeoples,Dene,GitxsanandWet’suwet’en,TsuuT’ina,Cree,Metis,Navajo,Maori,AboriginalAustraliansandTorresStraitIslanders.
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Membertou First Nation and the Cape Breton Regional Municipality
Sliammon First Nation and the City of Powell River
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4. Relationship Building Case Studies
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Case Study
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4.1 Sliammon First Nation and the City of Powell River (BC)
Location: BritishColumbia’sUpperSunshineCoast,125kmnorthofVancouver
Population: SliammonFirstNation:1,000CityofPowellRiver:14,000
Project costs:$2million
Funding partners: GovernmentofBritishColumbia
Keys to success: “Therewillbecontentiousissuesandpersonalityconflicts,whichiswhyitissoimportanttohavetrustasthefoundation.”Former Sliammon Chief L. Maynard Harry
“Patience,understandingandrespect.”Mayor Alsgard, City of Powell River
“Relationshipbuildingneedstobedoneonadailybasis.”Stan Westby, CAO, City of Powell River
Lessons learned:“Lookatthepoliticalchemistryandthendeterminehowyoucanworktogether.”Mayor Alsgard, City of Powell River
“Thebiggestriskisthebiggestreward.”Stan Westby, CAO, City of Powell River
“Theleadershiphastobewillingtoputinthetime.Forexample,theMayormakesanefforttoattendallmeetings.Thetrustestablishedbetweenthetwocommunitieswoulderodeifsomeonemissedtoomanymeetings,”Former Sliammon Chief L. Maynard Harry
Contacts: MayorStewartAlsgardorStanWestby,ChiefAdministrativeOfficer,CityofPowellRiverTel:604-485-8601(CityClerk’soffice)Email(viaCityClerk):[email protected]
ChiefWilliamsSliammonFirstNationTel.604-483-9696,ext.223(TBC)[email protected]
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BackgroundTheMayorofPowellRiverandtheChiefofSliammonFirstNationmetforthefirsttimein2002.ThisfirstencountertookplacewhentheMayorwasvisitingtheconstructionsiteofanewseawalkandwasapproachedbytheChief.TheChiefwasupsetwiththeconstructionworkbecauseitwasdisturbinghistoricareasanddamagingculturalitemssuchaspetroglyphs.TheMayorandcityhadbeenunawareofSliammon’sculturalareasandasaresulthadnotconsultedthembe-foretheconstructionoftheseawalkbegan.TheMayorthenaskedtheChieftocoffeetodiscusstheissue.
TheGovernmentofBritishColumbiahadprovidedfinancingof$2milliontotheCityofPowellRivertobuildtheseawalk.Duetothesensitivitysurroundingitscon-struction,MayorAlsgarddecidedtotrustintheintentionsoftheChiefandinstructedCAOStanWestbytowriteachequefor$2milliontoSliammonFirstNationtotakeovertheconstructionoftheseawalk.HavingSliammonFirstNationmanagetheprojectwouldensurethattheirheritageandculturewereincorporatedintotheseawalk’sdesignandconstruction,thereforeensuringthatthehistoricareawouldberespected.Today,theseawalksignswelcomevisitorswithSliammonlandmarknamesintheCoastSalishlanguageaswellasinCanada’stwoofficiallanguages.
Afterthisfirstencounterandtherealiza-tionthatthecommunitiesneededtobegintocommunicatemoreeffectively,furthermeetingstookplacelayingthefoundationfortheircurrentrelationship,whichisoneofmutualrespectandtrust.
Relationship building and the community accord Aftertheirfirstmeetingontheseawalk,therelationshipbetweenthetwocommunitiesquicklygrewtoencompasslargerissuesof
jointconcern.Toformalizetheirrelationshipandhighlightsubjectsofmutualconcern,thecommunitiesdraftedaCommunityAccord(i.e.,communicationsprotocol).Theaccordacknowledgesthetwocommunitiesintheirdistinctauthoritiesandresponsibili-tiestowardtheirmembersandresidents.Italsorecognizesthattheinterestsofallpersonslivinginthetwocommunitiesarebestservedbyworkingtogetherinthespiritofcooperation.
“Wecontinuetoworktogetherinthespiritoftheaccord,”saysMayorAlsgard.“Itisamodelforcommunity-to-communityrelationshipsandweareworkingfromit[thecommunityaccord]asabasisforcontinuedgrowthaspartners.”
OnMay10,2003,ahistoricceremonymarkedthisaccordandbroughttogetherrepresentativesfromthefederalgovernment,theprovincialgovernmentandthetwocommunities.TheceremonytookplaceinthetraditionalvillageofSliammon.Theobjectiveoftheceremonywastomarktherespectbothcommunitieshaveforeachother.
SincetheCommunityAccordceremony,numerouseventshavetakenplaceillustrat-ingthestrengtheningrelationshipbetweenSliammonFirstNationandtheCityofPowellRiver.In2004,thecommunitiesdevelopedanadditionalprotocolagreementonculture,heritageandeconomicdevelop-ment.Theyalsoappointedintergovernmen-talcoordinatorsandbeganregularintergov-ernmentalmeetings.
WhenthenewcouncilofPowellRiverwaselectedin2006,partofitsstrategicplanwastostrengthenrelationshipswithvariouslevelsofgovernmentincludingSliammonFirstNation.TherelationshipbetweentheMayorandChiefissuchthattheycancalloneachotherwhenneeded.Inaddition,politicalofficialsandstaffareinregular
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communicationwitheachandholdmonthlydiscussionsatanofficialmeeting,usuallyoverlunch.
Thereisagreatdealofrespectbetweenthetwocommunities.SliammonFirstNationgavetheMayoratraditionalname.ThegreatesthonourthatcanbebestoweduponanyresidentbyPowellRiverhasbeengiventotwoindividuals,bothofwhomaremembersofSliammonFirstNation.
Thetwocommunitiesextendahelpinghandtoeachotherwheneverpossible.Inoneinstance,theMayorreceivedacallfromSliammonregardingaproblemitwasexperiencingwithitswaterinfrastructure.Aspartofaneighbourlygesture,staffofPowellRiverweresenttohelpSliammonFirstNa-tionresolvetheissue.
Thestrongandrespectfulrelationshipbetweenthetwocommunitieshasnotgoneunnoticed:theBCTreatyCommissionwroteabookletontherelationshipbetweenPowellRiverandSliammon.
Service agreements and provision of servicesSinceNovember9,2009,SliammonFirstNationandtheRegionalDistrictofPowellRiverhavehadaserviceagreementinplaceforfireprotectionandlibraryservices.
BCTransitprovidesbusservicesinthePowellRiverregion.Untilrecently,thelaststopbetweenPowellRiverandSliammonwasthreetofourkilometresfromtheFirstNation’svillagecentre.AsofApril2011,thelastbusstopwillbeinSliammonproper.ThisservicewillbeofgreatusetoSliammon,ensuringthattheyouthandotherSliammonresidentsareabletoarriveathomesafely.
TheCityofPowellRiverisactivelyworkingtosolidifyadditionalserviceagreementswithSliammonFirstNation.Thereare
discussionsbetweenthetwocommunitiesonavarietyofissuesincludingwaterfrontprojects,liquidwaste,anOfficialCommunityPlan,andrecreationalfacilities.
Thereisgreatpotentialinthefuturetohaveserviceagreementsinplaceonwaterandwastewatergiventhatbothcommunitieshavereachedapointatwhichtheyneedtoinvestinwaterinfrastructure.TheCityofPowellRiverneedstoupgradeitswatersystemandthelakefromwhichSliammonFirstNationdrawsitswaterisreachingitslimitforprovidingthecommunitywithrawwater.Thecityisinvestingina$9-millionupgradetoitswatersystem,anditwouldbepossibletoextendthewaterlinetoaccom-modateSliammon’swaterneeds.AANDC’sengineers,onbehalfofSliammon,cametoinspectthesituationinlate2010.BothSliammonandtheCityofPowellRiverareinterestedinjointlyaddressingtheirwaterneeds.
Thecommunitiesfacethesameissueintermsofsewagetreatment.Bothcommuni-tiesneedtoupgradetheirsystemsandrec-ognizethatworkingtogetherwillbeamoreefficientandeffectivewayofresolvingtheirwastewaterneeds.
Whilemanydiscussionsaretakingplacesurroundingjointservices,thereareafewchallengescausingthedelaywiththefuturejointwaterandwastewaterprojects.ThemainchallengeisthedelayinSliammon’streatyprocess,whichthecommunitieshopewillsoonberesolved.Anotherchallengeisfindingfundstocarryoutthetechnicalworkneededtodevelopaconsolidatedproject.Finally,communitiesarestrugglingtodecidehowtocostsharepotentialserviceagreements.
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ChallengesInaninterviewwithCIPP,theCAOofPowellRivernotedhewaspleasedwiththecommunity-to-community(C2C)forumssponsoredbytheUnionofBCMunicipalities(UBCM)andFirstNationsSummit(FNS)thattookplacebetweenthetwocommunities,butrecognizedthatmoreworkneedstobedonetoensurethattherelationshipbetweentheCityofPowellRiverandSliammonFirstNa-tioncontinues.
Thebiggestchallengetothecommunitiesisfindingthetimeandmoneytodedicatetojointprojectsandfindingthemanagementresourcesneededfortheseprojects.Thecommunitiesalsonotethatpoliticalturnoverisachallengethatcancreatedifficultiesinmaintainingrelationships.
Finally,themunicipalitydoesnotalwayshavethejurisdictiontodotherightthing.Forexamplewhenasignificantamountofarchaeologicalfindswerediscoveredinapersonalresidence,theCityofPowellRivercouldnotinterveneortheywouldhavefacedliabilityissues.
ConclusionTherelationshipbetweenSliammonFirstNationandPowellRiverbeganoveraconten-tiousissuebutthetwocommunitieshavemanagedtoturntheirinitialdisagreementsintoanopportunitytodevelopastrong,mutuallybeneficial,trustingrelationship.Thecommunitiescredittheirsuccesstothehighlevelofcommitmentfromrepresentativesofbothcommunities.Meetingonaregularbasisandregularattendancehasbeenparamounttotheirachievements.
Overtheyears,thecommunitieshavedemonstratedtheirsolidarityandwillingnesstoworktogetheronissuesfacingtheircom-munitiesregardlessofwhetherthoseissuesareeconomicdevelopment,servicedeliveryortreatyissues.
“Itisatoughroadtotakebut,despiteitall,thereareincrediblerewards,”saidMayorStewartAlsgard.
Case Study ReferencesTheCityofPowellRiver.“ASustainabilityCharterforthePowellRiverRegion”,2008,revisedNovember2010.
TheCityofPowellRiver.“CityofPowellRiverBusinessPlan”,March2010.
TheBCTreatyCommission.“DevelopingInter-governmentalRelationships:theSliammon–PowellRiverExperience”,September2011.
CityofPowellRiver.“PressRelease:CityofPowellRiverexpresssupportforSliammonFirstNationTreatyProcess”,March3,2011.
SliammonFirstNation.“PressRelease:SliammonFirstNationcondemnHarpergovernmentforinactionontreaty”,March3,2011.
CityofPowellRiverwebsite:http://www.powellriver.ca/siteengine/activepage.asp
SliammonDevelopmentCorporationwebsite:http://www.sliammondevcorp.com/SDC/home.html
SliammonFirstNationwebsite:http://www.sliammonfirstnation.com/cms/
SliammonTreatySocietywebsite:
http://sliammontreaty.com
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Case Study4.2 Membertou First Nation and the Cape Breton Regional Municipality (NS)
Location: CapeBretonIsland,NovaScotia
Population: Membertou:850onreserveCapeBretonRegionalMunicipality(CBRM):100,000
Cost-sharing projects: $3.6millionforconnectorroad
Additional partners: GovernmentsofCanadaandNovaScotiaprovidedfinancingforconnectorroad.CBRMprovidedin-kindservices,mainlyengineeringservices
Keys to success: “Lotsofgoodwillandcooperation.”Dan Christmas, Senior Advisor, Membertou
“Keepthechannelsofcommunicationopen.Evenifthereisdissent,thebestapproachistocontinuethediscussion.”Doug Foster, Director of Planning and Development, CBRM
Lessons learned:Avoiddisagreementsbyconsultingwithyourneighbouringcommunityonissuesthatmayhaveanimpactonthembeforedecisionsaremade.
Contacts: DougFoster,DirectorofPlanningandDevelopment,CapeBretonRegionalMunicipality,[email protected]:902-563-5088
DanChristmas,SeniorAdvisor,Membertou,[email protected]:902-564-6466
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BackgroundOnAugust1,1995,CapeBretonRegionalMunicipality(CBRM)wasformedthroughanamalgamationofeightformermunicipalities,boards,andagencieswithintheCountyofCapeBreton.
FirstinhabitedbytheMi’kmaqpeople,CapeBretonwasoneofthefirstareasofNorthAmericatobeexploredbyEuropeans.TheMi’kmaqpeoplecontinuetobeimpor-tantmembersofCapeBretonsociety;threepercentofthetotalCBRMpopulationspeakMi’kmaq.
MembertouFirstNationisalsoanurbancommunityandwasnamedafterChiefMembertou(1510–1611).ItbelongstothegreatertribalgroupoftheMi’kmawNationandissituated3kilometresfromtheheartofSydney,NovaScotia,inthetribaldistrictofUnamaki(CapeBreton).Membertouwasrelocatedin1926fromitsformerlocationalongtheSydneyHarbour.
CBRMhassoldpropertiestoMembertouandownslandaroundMembertou.Whenamalgamationtookplacein1995,residentsofMembertouwereenumeratedforthefirsttime.MembertouresidentsareconsideredcitizensofCBRMandthereforecanaccessallrecreationalprogramsandfacilities.
Relationship buildingTheimprisonmentin1971ofMembertouresidentDonaldMarshall,Jr.hadamajorimpactontherelationshipbetweenMembertouandtheCBRM.DougFoster,DirectorofPlanningandDevelopmentattheCBRM,hasworkedforthemunicipalityfor32yearsandrecallsbeingconcernedthattrustwouldneverexistagainbetweenthetwocommunities.
Anumberoffactorsledtothere-establishmentoftrustbetweenMembertouandCBRMincludingpoliticalwillonthepartoftheMayorandChieftore-establisharelationship;leadershipfromtheChiefofPolice;andtheefforttoestablishrelationshipsineachgovernmentadministration,particularlytheplanningandengineeringdepartments.
Overthepast20years,therehasbeenatremendousimprovementintherelation-ship.Thecommunicationstartedinaveryformalmanner.Today,interactionsarenowmainlyinformal,occuronadailybasisandareproject-oriented.Differencesinopinionarise,butthetwocommunitiesworkto-gethertofindsolutionsfordailyoperationalissuesonaninformalbasis.
Everyonefromelectedofficialstostaffisinregularcommunicationwithoneanother.Therearenoregularformalmeetingsexceptwhenserviceagreementsarebeingrenewed.
Service agreements CBRMprovidesthefollowingservicestoMembertou:sewagetreatment,street-lighting,water,policingandfireprotection.Membertoucollectsitsownwaste;however,itisdisposedofatCBRM’slandfill.Membertoupaysforitsowncontractorstocollectwasteandpurchasedcompostbinsforallresidentsin2011.
ThereisamunicipalservicesagreementinplacebetweenCBRMandtheDepartmentofAboriginalAffairsandNorthernDevelopment(AANDC)withMembertouasathirdparty.Manyoftheagreementshavebeeninplacesincethe1960s.However,thenumberofservicescoveredintheagreementhasdecreasedovertheyearsasMembertouhasgrowninpopulationandprosperedeconomi-cally.Membertouhasoptedtobeathirdpartyintheagreementsothatitcanretainmorecontroloverrisingservice-deliverycosts.
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ThelastroundofnegotiationswithAANDCandCBRMincludeddiscussionsaboutwater-relatedcosts.Historically,AANDCpaidfortheentirecostofwater;however,withthearrivalofsomanyeconomicdevelopmentprojects,Membertouagreedtocoverthecostsforthecommercialusesofwater.
CBRMprovidespolicingservices.Theyareoutlinedinaseparatecontractwithfourparties:Membertou,CBRM,theGovernmentofCanadaandtheNovaScotiaDepartmentofJustice.
Joint projects ThetwocommunitiesworkedtogethertocompleteanewcollectorroadthatrunsthroughMembertouandleadstothere-gionalhospital.Theprojectinvolvedvariouslevelsofstafffrombothcommunitiesinclud-ingengineersandplanners.TherewasalotofgoodwillandcooperationbetweentheMembertouDevelopmentCorporationandCBRM’sPlanningandEngineeringofficestosuccessfullycompletetheprojectin2010.
Theprojectestimatewas$9million;how-ever,thefinalprojectcostwas$3.6millionbecauseofCBRM’scontributionofin-kindservices(mainlyengineeringservices).Membertoucontributedtothefinancingoftheprojectandthemajorfundersweretheprovincialandfederalgovernments.
AnotherprojectistheconstructionofaHiltonhotelonlandsadjacenttoMembertou.Membertoupurchasedthe22-acresitefromCBRM.TherewastheoptiontoconvertthelandtoFederalReserveLand,butthelandwouldhavebeentaxexempt.Membertouoptedtonotconverttheland,therebyensuringanewsourceoftaxrevenueforCBRM.
Economic development Before2000,Membertouhadalimitedeconomicbase.Inthelate1990s,ChiefTerrancePaulrecruitednewstaffandtogeth-ertheteamapproachedMembertou’sdeficitbasedonanewstrategicdirectionfocusedonsustainability,innovation,conservationandsuccess.Thisdirectionhasresultedinavibrantcommunitythatemploysover530peopleandhasattractedandfosteredmanybusinesses.Ninety-fivepercentoftheclientswhofrequentitsbusinessesarenon-Aboriginal.
Inthepastdecade,Membertouhasunder-gonerapideconomicgrowthandsuccess.TheGovernmentofNovaScotiaenteredintoagamingagreementwithMembertouthatallowsvariousformsofgamingandbingo.GamblingrevenuehasbeenthecornerstoneofMembertou’sfinancialsuccessandpro-videstherevenueforMembertoutoinvestinotherbusinesses.OnesuchinvestmentwastheMembertouTradeandConventionCentre,whichopenedin2004.Ithostslocalandinternationaleventsandconferences.
CBRMhasbeenexperiencingpopulationdeclineandawaningdowntowncore,asisthecaseinothercommunitiesintheregion.ThemaineconomicdriversintheCapeBretonregionweresteelandmining,bothofwhichhavedisappeared,leavingbehindhighunemploymentratesacrosstheregion.WhileCBRM’spopulationisindecline,thepopula-tionofMembertouisincreasing.
AlthoughMembertouandCBRMareexpe-riencingdifferenteconomicissues,theirfatesaretied.MembertouFirstNationisbuildingonitseconomichubandneedsalabourpooltosupportthisdevelopment.CBRM’spopulationisindeclinebutithastheinfrastructureinplacetoprovideservicestobothcommunities.
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Challenges ThespecificrolesoftheGovernmentofNovaScotiaandAANDCarenotalwaysclear,whichcanposecertainchallengesaroundaccountability.Similartoothercom-munities,MembertouFirstNationandtheCBRMhavefoundthattherearealsochal-lengesaroundconsistencygiventheturnoverinstaffandpoliticalrepresentatives.Thismakesitdifficulttotrytoestablishandmaintainrelationships.
CBRMandMembertouhavefoundthatthebestwaytogetthingsdoneistokeepcommunicationopenanddevelopacollaborativesolution.
ThereisthepotentialtofurtherdeveloptherelationshipbetweenthetwocommunitiesandanearbyFirstNation,Eskasoni.Eska-sonihasthelargestcommunityofMi’kmaqspeakersintheworldandhasapopulationfourtimesthesizeofMembertou.Inthepast,aresidentofEskasoniwaselectedtoCBRMcouncil.
HalfthelabourforceofMembertoucomesfromoutsidethereserve.Inthefuture,MembertouwouldliketoworkwithEskasonitodrawfromitslabourforce,whichhasahighunemploymentrate.
ConclusionMembertouandCBRMhavefacedenormouschallengesovertheyears.Theleadershipdemonstratedbystaffandelect-edofficialsfrombothcommunitieswasthecatalystinrepairingdamagecausedbytheDonaldMarshall,Jr.case.Asthecommuni-tiesfacetheirownuniqueeconomicanddemographicchallenges,theircollaborationandsupportforeachotherwillhelpensureeachother’sviability.
Giventhemultiplerelationshipsthatexistbetweenstaffandelectedofficialsinthetwocommunities,CBRMandMembertouhavefoundthattheirmodelofdailycommunica-tiononaproject-by-projectbasisworkstomaintainopencommunicationandfostertrust.
Case Study References CBRMwebsite:http://www.cbrm.ns.ca/
MembertouNationwebsite:http://www.membertou.ca/main-page.asp
UNIT 2