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A Case Study with the Metlakatla First Nation

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A Case Study with the Metlakatla First Nation Cultural Values in Cumulative Effects Management: A Case Study with the Metlakatla First Nation by Brennan Hutchison B.Sc.(Env.), University of Guelph, 2014 Project Submitted in Partial Fulfillment of the Requirements for the Degree of Master of Resource Management (Planning) in the School of Resource and Environmental Management Faculty of Environment Report No. 684 © Brennan Hutchison 2017 SIMON FRASER UNIVERSITY Fall 2017 Copyright in this work rests with the author. Please ensure that any reproduction or re-use is done in accordance with the relevant national copyright legislation. Approval Name: Brennan Hutchison Degree: Master of Resource Management (Planning) Report No. 684 Title: Cultural Values in Cumulative Effects Management: A Case Study with the Metlakatla First Nation Examining Committee: Chair: Chloe Boyle Master of Resource Management Candidate Murray B. Rutherford Senior Supervisor Associate Professor Thomas Gunton Supervisor Professor Date Defended/Approved: August 28, 2017 ii Ethics Statement iii Abstract Conventional approaches to environmental impact assessment and cumulative effects assessment (CEA) have largely failed to incorporate the cultural values of Aboriginal communities and have inadequately addressed the negative impacts of development on these values. The main objective of this study is to develop and demonstrate an improved methodology for identifying and assessing cultural values to inform CEA and other decision-making processes. After reviewing the major weaknesses and recommendations discussed in the literature on CEA and cultural values, I describe the new method and demonstrate its application as part of an innovative cumulative effects management program instituted by the Metlakatla First Nation for their traditional territory in northwestern British Columbia. I compare my results with the results of a recent conventional assessment conducted for the Pacific NorthWest LNG Project in Metlakatla territory. The new method provides useful information to support Metlakatla efforts to maintain their culture, language, and practices. Keywords: Cumulative effects; Cumulative effects assessment and management; Environmental assessment; Aboriginal cultural values; Valued components iv Dedication . To Mom and Dad, for your love, inspiration, encouragement and support v Acknowledgements I would like to first thank the Metlakatla First Nation for being my research partner and providing me with this opportunity. I appreciate the relationship that we established and the commitment of the Metlakatla to this work. Thank you to Chief Harold Leighton and Ross Wilson for initiating and believing in this work. Thank you to Taylor Zeeg and Anna Usborne for your support, encouragement and commitment to this program and the success of my own work. I would like to also thank Metlakatla department managers, staff, elders and community members for their contributions to this work and support during my time in Prince Rupert and Metlakatla Village. I owe a huge thank you and am eternally grateful to the Metlakatla members who graciously volunteered to provide their valuable insights and knowledge as an interview participant for this project. This project would not have happened without your commitment and willingness to help! Thank you to my supervisor, Dr. Murray Rutherford. Your insights, feedback and support throughout my time at REM is greatly appreciated. It has been an honour to work with you and I truly have learned so much from you. Thanks for your trust in me and my abilities and challenging me with different perspectives. I valued our engaging conversations and your ability to provide me with a greater understanding and learning experience. I would like to thank Dr. Tom Gunton for his insights and feedback throughout various stages of my research project. Your vision for this project and interest in the work and its potential were greatly appreciated. Thank you to Katerina Kwon for your constant willingness to provide guidance, support, and feedback at any point in time on both my research project and the Master’s experience overall. I highly value your insights, encouragement, wisdom and your passion for this work. Thank you for being a mentor to me throughout this process. Thank you to the group of friends that make up my REM family. Together, we supported each other through all the ups and downs of the REM journey and orphaned holidays. I have learned so much from you all. Thanks for the memories. vi Finally, to all my immediate and extended family and friends who supported me throughout this crazy journey. Thanks for believing in me and continually motivating me to continue to pursue my passions. Together, you have all played a significant role in helping me get to this point and in achieving what I have. I want to specifically thank my mom and dad for always being there and supporting me through all my wild ideas and adventures, my brother, Ryan, for showing me what hard work and perseverance can accomplish and my Uncle Kevin for his love, support and unfiltered advice. This research project has been funded through the MITACS-Accelerate Cluster program involving the Metlakatla First Nation and Simon Fraser University. Funds were also received for this project through the Canada Graduate Scholarships- Master’s Program from the Social Science and Humanities Research Council (SSHRC). vii Table of Contents Approval .......................................................................................................................... ii Ethics Statement ............................................................................................................ iii Abstract .......................................................................................................................... iv Dedication ....................................................................................................................... v Acknowledgements ........................................................................................................ vi Table of Contents .......................................................................................................... viii List of Tables ................................................................................................................. xii List of Figures................................................................................................................ xiii List of Acronyms ............................................................................................................ xv Chapter 1. Introduction .............................................................................................. 1 1.1. Research Context .................................................................................................. 1 1.1.1. Assessing Cumulative Effects of Resource Development on Aboriginal people ........................................................................................................... 1 1.1.2. Cumulative Effects and Cultural Values of the Metlakatla First Nation ........... 2 1.2. Overview of Research Objectives and Methodology .............................................. 3 1.3. Report Structure .................................................................................................... 4 Chapter 2. Cultural Values in Current Cumulative Effects Assessments ............... 6 2.1. Cumulative Effects Assessment ............................................................................ 6 2.1.1. Cumulative Effects ......................................................................................... 6 2.1.2. Cumulative Effects Assessment .................................................................... 7 2.1.3. Benefits of CEA ............................................................................................. 9 2.2. Conducting CEA within Canada and BC ................................................................ 9 2.2.1. Environmental Assessment of Development Projects .................................. 10 2.2.2. Canadian Environmental Assessment Act ................................................... 11 CEA within the CEAA, 2012 ................................................................................... 12 2.2.3. British Columbia Environmental Assessment Act ......................................... 13 CEA within the BC EAA, 2002 ................................................................................ 14 2.2.4. Use of Valued Components in EA and CEA ................................................ 14 Significance of Effects on Valued Components ...................................................... 15 2.2.5. Province of BC and Federal Agencies Working Together ............................ 15 2.3. Strategic Environmental Assessments and Regional Planning ............................ 16 2.4. Aboriginal Involvement in Canadian Environmental Assessments ....................... 18 2.4.1. Aboriginal Rights and Title ........................................................................... 18 2.4.2. Duty to Consult ............................................................................................ 19 Concerns about the level of consultation and Aboriginal involvement in EA processes .............................................................................................................. 21 2.5. Aboriginal Culture ................................................................................................ 21 2.6. Aboriginal Culture and
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