Unit 2: Guide to Relationship Building - FCM

Unit 2

Guide to Relationship Building

12 – Service Agreement Toolkit

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


Service Agreement Toolkit – 13

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.


UNIT 2

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.


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


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


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.


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.


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).


UNIT 2

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


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.


UNIT 2

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.


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


UNIT 2

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.


[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


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.


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


UNIT 2

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.


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.


UNIT 2

INWITNESSHEREOFthePartieshavesignedtheCommunicationsProtocoleffectiveasofthedatefirstwrittenabove.

By:

___________________________________________________________________________________

[Signature]

PrintName: ______________________________________________________________________

Title/Position: ______________________________________________________________________

By:

___________________________________________________________________________________

[Signature]

PrintName: ______________________________________________________________________

Title/Position:______________________________________________________________________


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.


UNIT 2

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.


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.


UNIT 2

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.


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


UNIT 2

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.


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.


UNIT 2

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


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.


UNIT 2

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.


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.


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


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


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.


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

Documents

Unit 2: Guide to Relationship Building - FCM