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IMPLICATIONS
OF THE PROCESS AND DATA COLLECTED The
Province
of
Manitoba
and
the East Side Secretariat are commended for their efforts to develop
a Broad Area Plan. The move toward sustainable development and
including the various publics in the planning process is a welcome
change to the previous way of conducting business in the region.
The task is a formidable one that has taken a great deal of
planning and co-ordination to assemble the amount of information
required within the time frame and budget allocations. The
intentions and efforts put forward to date are duly recognized.
To facilitate continuation of the process and the future
implementation of the plan, the following narrative discusses the
implications of the consultation process and the data collected.
Included is a summary of the community discussions and an
integration of their recommendations. Timeframes and limited funding also determined the scope of the current community consultations and the amount of community involvement that could actually occur. As a result, the consultation process has merely sketched the tip of the iceberg regarding the reality facing NACC communities. The focus on information sharing, the short timeframes and inadequate resource allocations made the task to gather specific data from a broad range of publics such as the trappers, commercial fishermen, prospectors as well as the communities potentially affected on the west side of the lake, problematic. The issues identified, however, provide a starting point and can be the focus for the collection of socio-economic data and local environmental knowledge which is an integral component of sustainable development planning that was missing in the current consultation process. Communities are also interested in hearing concerns and sharing ideas with other communities and working together to influence decision making for the region as a whole. The following submission integrates the comments and recommendations from the NACC communities. It identifies the work and research that would facilitate the incorporation of community input within the Wabanong Nakagum Okimawin. Traditional
Activities There
is a vast amount of local and indigenous environmental knowledge
which is being untapped. There
is no mechanism to gather this knowledge nor is there a method
identified regarding how it will be integrated and combined with
western science to inform the Broad Area Plan process and future
planning initiatives. Recommendations: Traditional Activities · Government needs to acknowledge and take serious local and indigenous environmental knowledge. · Methods to gather and incorporate local and indigenous knowledge into the Broad Area Planning process needs to be developed and implemented. Existing Land Uses and New Development Proposals Existing land uses including forest tenure and protected areas designation shall continue. Crown land and resource development and allocation requests which have a minor land use or environmental effect would be processed and approved or declined as per normal government administrative procedures. Examples include: cottage lots, lodge out camps, trapping cabins and fishing and hunting licenses. Upon approval of the plan, allocations and land uses would then be administered in compliance with the plan. Major
concerns have been raised regarding cottage lot development,
protected areas, lodge out camps and fishing licenses since they
impinge and impact the way of life of the people living on the Recommendation: Existing Land Uses and New Development Proposals
Protecting the Boreal Environment Consistent
throughout the NACC consultations is reference to Many
NACC communities are involved in commercial fishing and many
businesses in the region as well as the province indirectly benefit
through spin off economic activities. There is danger that continued
deterioration of the quality of the water coupled with reduced
prices for fish, jeopardizes the long term sustainability of the
fishing industry. Information
is needed regarding industrial impacts occurring on the Environmental issues include increasing problems of sewage disposal due to increasing cottage development, environmental clean up from past development, erosion of river banks and maintaining biodiversity to maintain lifestyles and traditional activities. The increase of boats on the water due to tourism increases splashing onto shore which stirs up the whole lake. Erosion has also resulted in the loss of the beach that had been used by locals for recreation. The water level is low and the area is now full of clay. Chemical spraying by Hydro and the Department of Highways contaminates the vegetation and fish consumed by local people. Calcium on the roadways ends up in the lake. Awareness of the affects and increased enforcement of regulations could help curb conservation and environmental violations. Recommendations: Protecting the Boreal Environment ·
Research and involve other
groups/agencies/departments concerned with protecting the
environment. ·
Investigate environmental problems and develop
inter-jurisdictional mechanisms to address the full effect of
watershed issues. · Increased enforcement by appropriate agencies should take place to discourage violations of conservation and environmental regulations and policies. Water Quality · Water quality needs to be maintained and monitored to sustain the fishing industry. ·
Develop an on-going dialogue and follow-up with the
Board that is studying the effects of ·
Properly clean up the Sewage
Disposal · Regulations for sewage disposal need to be developed and clearly communicated to cottagers through signage and pamphlets to raise awareness. · Enforcement mechanisms for waste disposal need to be developed to ensure compliance. · Regulations need to be enforced by the appropriate agencies to stop and control poor waste disposal habits. Bio
Diversity ·
Corporations and companies not complying with
environmental regulations should be charged to discourage
environmental damage and encourage sustainable development. ·
Corporations should be involved in regional discussions so
they can become aware of the communities’ interests and
environmental concerns in the region. ·
Conduct studies to determine why the weeds are not growing. ·
Document local knowledge; conduct surveys and land use
mapping. · Impact assessments need to be conducted from a long-term perspective. ·
Communities need to comply with their operating licenses of
lagoons. ·
Industry needs to get directly involved in sustainable
development initiatives. ·
Bio-diversity in the region needs to be maintained through
appropriate study and consultation for sustainable development. ·
Wildlife needs to be maintained in the area. ·
Keep from spraying chemicals. · Stop putting pollutants into the system. · Protect Aboriginal and Treaty Rights by maintaining hunting, fishing, trapping and gathering. Clean
Up ·
NACC communities need to get involved in Hydro
initiatives regarding environmental clean up. ·
Research the extent of contamination and
implement clean up initiatives. · Promote a clean environment. · Before moving forward, fix the current problems
Aboriginal rights are impacted by major development on traditional lands and aboriginal people have an interest in protecting these lands from outside incursion. Aboriginal and Treaty Rights pertain to crown lands that contain specific hunting and fishing territories where harvesting activities form the base of an informal economy. Recent court decisions regarding disputes over land use consistently rule in favor of aboriginal rights. The test of Sparrow (1990), for example, is to conduct adequate consultation to identify all the interests and concerns and to ensure minimal impact. Delgamuuk (1997) calls for meaningful consultation when access to and use of lands and resource potentially infringe upon aboriginal and treaty rights. Delgamuuk requires something significantly deeper that mere consultation where aboriginal people are fully informed, in a timely manner, that there are meaningful opportunities to express interests, issues and concerns and that they are given serious consideration. Weyerhauser (2002) refers to accommodation of the proprietary interests of aboriginal peoples in relation to land use. Ninety per cent (90%) of the people in NACC communities have regained their status through Bill C31 of the Indian Act. Although some have become members of a First Nation, many have not. Without affiliation, the ESPI First Nation Council cannot represent their interests. Individuals under Bill C31 must represent their own interests notwithstanding the fiduciary obligation of the federal government under INAC to ensure that their aboriginal rights are protected. INAC, however, has been a missing player in the ESPI deliberations and there has not been a mechanism or protocol developed to address Bill C31 aboriginal rights. Consultation before protocol is to put the cart before the horse. The restricted time frames and limited amount of monies designated for community consultation is insufficient to ensure that these legal requirements can be met. Communities cannot become fully informed about the Broad Area Planning Initiative to enable them to express their interests and identify concerns based on reflection and meaningful involvement by community members. Impact cannot be determined, as well, if information is not gathered regarding traditional life style and its significance to the communities. From an aboriginal perspective, this situation gives the impression that the government doesn’t understand the complexities of aboriginal rights and its implications which leads to cynicism and skepticism that community input will be taken seriously. Recommendations:
Aboriginal and Treaty Rights
Ensuring an On-Going Mechanism for Plan Implementation Long
term viability of the Broad Area Plan is in jeopardy when aboriginal
communities have voiced the concern that consultation has not been
adequate. Recommendations:
Ensuring an On-Going Mechanism for Plan Implementation ·
Develop appropriate processes for meaningful
involvement with NACC communities. ·
Include elders on the Advisory Committee and have
the Advisory Committee meet on an on-going basis not just once or
twice in the process. ·
Develop inter-jurisdictional agreements to
resolve complex past issues and to address potential future
infringement of Aboriginal and Treaty Rights in a comprehensive
manner. ·
Every effort needs to be made to include the
regional round tables in planning initiatives. ·
A workshop/conference with NACC communities must
be organized to share information regarding their issues and
concerns and to collaboratively develop a vision, role and strategy
for continued involvement in the Broad Area Planning initiative. ·
Communities should choose the people to sit on
the round table. They
should not be appointed. ·
Develop a mechanism to resolve conflicts between
public interest and proprietary rights of aboriginal peoples. ·
Maintain NACC status on the ·
Formalize guidelines, develop standards and
create linkages across departmental lines. · Develop integrated policies to overcome the barrier of fragmented responsibility. Community and Regional Planning Aboriginal and Community Development NACC communities lack the community plans and land use studies of the surrounding area to incorporate community aspirations and long range plans into the Broad Area Planning process. Shareholders of companies are also marching to a different drummer than the concepts of sustainable development. The economic and political drivers are disrupting and NACC communities are not sure where development is headed. The regional economic Round Table is currently being driven by Northern Affairs and the old systems are not in tune with new concepts. The communities need to first learn how to become a region where the design of development meets community not government needs. Recommendations: Aboriginal Community and Regional Planning ·
WNO needs to support and encourage the
development of community plans. ·
Legal surveys need to be completed for all NACC
communities. ·
Formalize guidelines, develop standards and
create linkages across departmental lines that enable rather than
hinder community and regional development. ·
Adequate resources need to be provided for
communities to hire appropriate expertise to assist with the
development of community and land use plans on their own terms.
Land use studies need to be conducted within community
boundaries and the surrounding area. ·
A regional vision needs to be developed
collaboratively with all players. ·
Impact assessments need to be conducted before
developing the east side. ·
NACC communities need continued involvement to
have a say. ·
Increase understanding of the concept of
sustainable development and promote sustainable living concepts.
·
Local communities need to support local
businesses. ·
Develop a mechanism and the capacity for
communities to work co-operatively together. ·
A questionnaire needs to be developed for the
youth to get their input. We
need to have a youth and elder gathering. ·
Management has to come from within. · Provide services such as cell phones, call waiting, etc. · Develop emergency response plans to correspond with future development needs. Economic & Employment Development To improve a region, you need to respond to the opportunities. Through combined community efforts, we could build mini successes and learn from the values achieved. These successes, in turn, can be used as a measuring tool for further development. Protection against liability is a barrier to moving forward. Identification of responsible parties is not clearly stated which leave projects vulnerable. There is fragmentation of responsibility within government and micro-management stifles progress. Initiatives have worked in spite of the system. Recommendations:
Economic and Employment Development ·
A mechanism needs to be developed collaboratively
with NACC, Metis, Bill C31, First Nations, non-aboriginals and
government to work together for mutual benefit. Other inclusive
models need to be researched. ·
To demonstrate social responsibility, crown
corporations and industry conducting business in the north that
receive subsidies from either level of government should adopt and
enforce employment equity measures to enable equal access and equal
opportunity for local and regional employment by NACC community
members. ·
Increased enforcement by appropriate agencies
should take place to discourage violations of regulations and
policies. ·
Establish hire local criteria to keep the younger
people in the region. ·
More consultation is required for area employment
and contract opportunities for Department of Highways, Department of
Conservation, Hydro, and Tembec.
Capacity
(human and financial) at the local level is limited in regards to
time availability for Mayors and councilors to take an active role
to gather and reflect on the type of relevant information required.
Overall capacity to respond in a meaningful way is limited
internally amongst NACC communities and externally between
governments and industry. Improved
capacity at the local level will enable communities to respond
proactively and meaningfully to development plans rather than merely
react to issues as they arise. Improved
capacity within government and industry will enable the shift in
thinking that is required for sustainable development to be
effective. Recommendation:
Capacity
Development · Capacity of all players needs to be developed to enable informed participation. Awareness training and/or education is required in regards to the concept of sustainable development and broad area planning as well as the role of communities and the role of other key stakeholders within the process.
Divisions
Within and Between Communities The
five groups of NACC, Metis, Bill C31, First Nations and
non-aboriginals cause divisions within and between communities in
the region. Everyone has
a vested interest in development as well as protection of the land,
yet divisions between people manifest themselves in various ways.
There is lack of support, for example, to hire locally or to support
local businesses, not just by industry or government, but by the
local communities themselves. As
a result, businesses fail and communities hire individuals from
outside the region even when there are skills available locally.
In some cases, government or industry identify priority
hiring for one group at the expense of another, causing further
alienation and isolation. Initiatives
having a regional focus will encourage communities to work together
to achieve economies of scale, retain youth and create
opportunities.
Recommendation:
Divisions
Within and Between Communities ·
Develop regional capacity to create viable
regional economies, recreation and improve the quality of life.
Begin with workshops and conferences to create a shared sense of
inter-dependence.
Consultation on Land and
Resource Allocations Communities
are concerned that the government already has a plan in place and is
merely going through the motions of community consultation.
In some cases, there is a general lack of interest by
community members to attend meetings because of the skepticism that
their input will be taken seriously.
Recommendations:
Cynicism ·
Government needs to build relations and
demonstrate a commitment to partnership and on-going involvement
with communities potentially affected by development on the ·
Develop joint planning mechanisms where
government is accountable to act on community input. · Relationship building and the capacity to function effectively in a collaborative environment needs to be developed by all parties. Consultation
and Communication Lack
of consultation, ineffective consultation and lack of communication
regarding past development on the
East Side
has
been a key contention overall. NACC
communities feel they have been overlooked in regards to development
by both government and industry. The impacts of development,
however, are felt directly by people living in this region. NACC
communities usually hear about initiatives after the fact, once
decisions have been made. Communities will be left out of
development when they don’t know what is happening.
The communities want to know what is going on and to have a
say in how development occurs. There needs to be on-going regional
representation for the Recommendations:
Consultation and
Communication ·
The government needs to be open about development
plans. ·
Maintain NACC status on the ·
Adequate resources need to be provided for NACC
communities to hire their own consultant to work directly on their
behalf and on an on-going basis to ensure fairness and a level
playing field. ·
Adequate resources tied to broad timeframes is
required to fully inform communities, gather information, deliberate
and enable informed participation. ·
Socio-economic data and land use studies need to
be completed and incorporated into the plan as part of the community
consultation process. ·
The inter-departmental group needs to keep the
Round Table informed of all activities on the east side on an
on-going basis. ·
Appropriate consultation needs to occur with all
departments on all local and area concerns not just within the
established community boundary. ·
Communication
needs to occur on all levels, between NACC, the communities, the
Ministry and the Secretariat. ·
Timeframes
need to be structured to ensure incorporation of collection of
primary data where it does not exist and for holding community
meetings. ·
Projects
and timing for community consultation need to be scheduled so as not
to interfere with seasonal activities such as hunting, fishing,
prospecting and for consideration of freeze-up and break-up. ·
Sufficient
time needs to be allowed for community consensus building and
ratification by community leadership. ·
Collaborate
for data collection.
Protected areas have the effect of locking
and blocking in communities. Imposing
controls through the protected area system restricts access and use
by local people. The government is willing to protect areas
through the protected areas initiative and the protection of
traditional medicines should be included within this category.
Traditional foods are linked to good
health. We need to
identify these foods and protect them.
A lot of historical sites would need to be protected.
Protected Areas ·
Lessen restrictions in designated parks and
reserves, corridors and river systems. ·
Conduct research in collaboration with
communities regarding the need for and identification of protecting
areas of cultural significance.
Clear cutting has caused loss of trees for
pulp. Clear cutting
effects water quality, fishing, trapping and an increase in forest
fires. Some areas have not been reforested.
The
Recommendation:
·
Before moving forward, fix the current problems. ·
Assemble all relevant information and share with the communities. Existing
roads need to be upgraded (paved and ditched) as well as maintained
for access and safety. PR
#234 is used by people on the east side and west side of the lake as
well as from the northern communities.
Businesses are located on the west side as well as social
services such as hospitals, doctors and personal care facilities
which are accessed by PR #234. The
existing roads are in poor condition which make them hazardous for
local residents. Two
kilometers of Tembec’s Road, for example, is not maintained for
winter conditions which adversely affects the safety as well as
access to communities from Loon Straits to the northern reserves.
In general, NACC communities support the
development of an all weather road to the northern communities to
reduce the costs of food and improve health and social services.
If an all weather road were opened up,
people in the remote areas could fish for seven months of the year
instead of four which would double the amount of fish caught each
year. This would provide
an incentive for the young people to stay. An all weather road would
also reduce transportation costs for medi-vac and groceries which
are very high. There are high costs associated with flying to Concerns regarding a road have been raised in
regards to potential impacts to the river and that Oceans and
Fisheries have not been involved. Opening up the area of the Recommendations:
Transportation ·
Check with INAC and Northern Affairs for a report
and consultations that had already been completed about 15 years
ago. ·
There needs to be adequate or additional funding
for road construction and maintenance of existing roads. As a
priority, pave and maintain #234. ·
Provide an all-weather road to northern
communities to ensure access to economic development opportunities,
reduce the high costs of food and access to health services.
· As an interim measure, build a road from Poplar River to Island Lake. Supplies/materials could be barged to Poplar River and then over to Island Lake. This approach would reduce transportation costs for the northern communities a lot sooner. · Corridor development should include both the roads and the transmission lines to minimize impact to the forest. · Develop mechanisms to address inter-jurisdictional issues. · Open up an all weather road to diversify the economy, reduce the high cost of living, improve communications and connectivity and provide an incentive for people to stay. Increased lodge development on remote lakes
by non-residents results in money leaving the region.
The Park’s initiative imposes controls that restrict access
and use by local people. Communities
want to continue using the river as they have always done and to
promote its potential for eco-tourism.
Pressures to develop remote cottages will effect day use by
local communities and increase noise levels.
Land allocations would increase conflicts. There is potential
for cottage development within the boundaries of the communities and
to develop the region for year round recreation. Recommendations:
Tourism and Recreation ·
Put a freeze on cottage development on remote
lakes and opening up additional sites on remote lakes. ·
Develop and promote cottage potential within
community boundaries. ·
Develop and promote year round tourism ·
Continued upgrading of PR #304 to improve access
to the region. ·
No exclusive use of water ways, lodges and parks. Fifty
feet of water has been lost over the last 10 years because of the
erosion of Contamination
of hydro sites is a major concern in NACC communities.
People have planted gardens and creeks flow in the areas of
contaminated sites. Hydro
started clean up of old sites and there are environmental issues but
communities haven’t been consulted or been made aware of current
developments. There have
not been any updates on the Bi Poll III.
Hiring by Hydro should not benefit one group. Recommendations:
Hydro
Boom and bust scenarios are typical of mining
communities. There are differing opinions regarding mining in the
area. For those
communities which support mining, the goal is to continue the
viability of the mining industry and to carry on with exploration to
see potential benefits for the future.
However, too many restrictions affect the viability of
exploration. Concerns identified regarding mining relate to
environmental impacts and its relationship to health.
Recommendations:
Mining ·
Lessen restrictions in designated parks and
reserves, corridors and river systems that have an adverse affect on
the great mining potential of the area. ·
Continue and promote exploration in the area. ·
Determine the links between waste from mining
activities and increasing health problems in the region such as
cancer. The
economy in many NACC communities is based on the fishing industry
and has been for over 150 years.
It is a way of life for the people.
To reach quota, fishing is for only four months of the year,
through the fall, winter and spring.
The lake quota is 1.5M kilos.
In 4 or 5 years we produced 500 – 600,000 kilos so there is
room to expand. If an all weather road were opened up, we could fish
for seven months instead of four and double the amount of fish we
catch each year. This
would provide an incentive for people to stay. Regulations also
restrict us to bringing in the small fish because we are limited to
small nets. Prices are
down for Whitefish. You
get three times as much money for Pickerel so the incentive is to
fish for Pickerel. There
are a lot of people in the region involved in the commercial fishing
industry on Recommendations:
Commercial Fishing ·
Gather the data and study the economic
significance of commercial fishing for the ·
Commercial fishing needs to be considered as a
main stay and a priority. The
viability of the industry and the sustainability of the resource
must be ensured. The
poor health on the Recommendation:
Health and Social Issues ·
Open up the land on the · Conduct research to determine the extent of environmental contamination on the health of the people in the region.
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