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“Just Do It!” Self-Determination for Complex Minorities

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“Just Do It!” Self-Determination for Complex Minorities “Just Do It!” Self-Determination for Complex Minorities By Janique F. Dubois A thesis submitted in conformity with the requirements for the degree of Doctor of Philosophy Department of Political Science University of Toronto © Copyright by Janique F. Dubois, 2013 “Just Do It!” Self-Determination for Complex Minorities Janique F. Dubois Doctor of Philosophy Department of Political Science University of Toronto 2013 Abstract This thesis explores how Indigenous and linguistic communities achieve self- determination without fixed cultural and territorial boundaries. An examination of the governance practices of Métis, Francophones and First Nations in Saskatchewan reveals that these communities use innovative membership and participation rules in lieu of territorial and cultural criteria to delineate the boundaries within which to exercise political power. These practices have allowed territorially dispersed communities to build institutions, adopt laws and deliver services through province-wide governance structures. In addition to providing an empirical basis to support non-territorial models of self-determination, this study offers a new approach to governance that challenges state- centric theories of minority rights by focusing on the transformative power communities generate through stories and actions. ii Acknowledgements I would not have been able to complete this project without the generosity and kindness of family, friends, mentors and strangers. I am indebted to all of those who welcomed me in their office, invited me into their homes and sat across from me in restaurants to answer my questions. For trusting me with your stories and for the generosity of your time, thank you, marci, merci, hay hay. I am enormously grateful to my committee members for whom I have the utmost respect as scholars and as people. The research and writing of this dissertation has benefitted from their commitment to engage with my ideas as well as with one another throughout this journey. It has been a pleasure to sit at the table in such good company. I will forever admire Joe Carens for articulating my thoughts with more clarity than I can muster. His positive nature and genuine kindness have been a source of encouragement on both an intellectual and personal level. Graham White’s careful attention to detail allowed me to navigate the requirements of the PhD program while always keeping the big picture in sight. His good humour is a reminder that no matter how serious the question, one should always enjoy finding the answer. I am also grateful to Melissa Williams for taking the time to help me work through my thoughts with sincere questions. Her patience and her confidence in my abilities have pushed me to think more clearly and to write with honesty. I am humbled to have such exemplary mentors. I would like to thank the many people I have met over the years who have helped make life more enjoyable. A special thanks to Larissa Atkinson, Kiran Banerjee, Jeffrey Bercuson, Wayne Chu, Wayne Dealy, Kate Korycki, Tom Meredith, Heather Millar, Mike Painter-Main, Tobold Rollo, Ethel Tungohan and others who have resolved many of life’s puzzles in pubs and cafés around SidSmith Hall. I am fortunate to have participated in numerous conferences where I have received insightful feedback and met wonderful colleagues like Kelly Saunders who make academic research a fun conversation. I am also grateful to Karen Diepeveen, Alroy Fonseca, Stephen Larin, Ryan Saxby-Hill for being smart and sensible. Je veux aussi remercier la gang d’exilés sans qui je serais dépaysée. Et un merci particulier à Andrew Christie d’avoir trouvé avec moi un équilibre entre la curiosité intellectuelle et les plaisirs de la vie. This dissertation would not have seen the light of day without the unconditional love and support of my family. I am especially indebted to my siblings and tireless editors, Justin and Danielle, who truly understand me. I owe my greatest thanks and admiration to my parents, Gustave and Roberta, who have inspired me with their resolve and humility. Je souhaite dédier cette thèse à mon père qui, malgré ne l’avoir jamais lue, l’aurait comprise car c’est de lui qu’elle s’inspire. iii List of Abbreviations Aboriginal Affairs and Northern Development Canada (AANDC) Agreement-in-Principle (AIP) Assemblée communautaire fransaskoise (ACF) Assembly of First Nations (AFN) Association of Saskatchewan Indians (ASI) Association culturelle franco-catholique (ACFC) Association of Métis and Non-Status Indians of Saskatchewan (AMNSIS) Association provinciale des parents fransaskois (APPF) Central Urban Métis Federation Inc. (CUMFI) Court Challenges Program of Canada (CCPC) Canadian Parents for French (CPF) Clarence Campeau Development Fund (CCDF) Conseil des écoles fransaskoises (CÉF) Conseil scolaire fransaskois (CSF) Co-operative Commonwealth Federation Party (CCF) Court Challenges Program of Canada (CCPC) Fédération des Francophones hors Québec (FFHQ) Fédération des Francophones de Saskatoon (FFS) Fédération canadienne franco-canadienne (FCFA) Federation of Saskatchewan Indians (FSI) Federation of Saskatchewan Indian Nations (FSIN) Gabriel Dumont Institute (GDI) iv Gabriel Dumont Technical Institute (GDTI) Indian and Northern Affairs Canada (INAC) Indian Government Commission (IGC) Institute on Governance (IOG) Language Rights Support Program (LRSP) Manitoba Métis Federation (MMF) Meadow Lake Tribal Council (MLTC) Métis Addictions Council of Saskatchewan Incorporated (MACSI) Métis Association of Alberta (MAA) Métis Association of Saskatchewan (MAS) Métis Electoral Consultation Panel (MECP) Métis Family and Community Justice Services (MFCJS) Métis National Council (MNC) Métis Nation Legislative Assembly (MNLA) Métis Nation-Saskatchewan (MN-S) Métis Society of Saskatchewan (MSS) National Aboriginal Friendship Centres (NAFC) Native Council of Canada (NCC) Northern Municipalities Act (NMA) Office of the Treaty Commissioner (OTC) Prince Albert Grand Council (PAGC) Provincial Métis Council (PMC) Saskatchewan First Nations Veteran’s Association (SFNVA) v Saskatchewan Métis Society (SMS) SaskMetis Economic Development Corporation (SMEDCO) Treaty Land Entitlement Framework Agreements (TLEFA) vi List of Figures Figure 1: Proportion of children under 18 years of age living in a family where at least one parent is of French-mother tongue, by mother tongue of parents, Saskatchewan, 1971 and 2006………………………………………………………………………47 Figure 2: The Foundation of Métis Governance ............................................................... 95 Figure 3: Map and Listings of Métis Regions and Locals (MN-S, 2011b) ...................... 96 Figure 4: Structure of the ACFC ..................................................................................... 136 Figure 5: Indian Chiefs Medal ........................................................................................ 153 Figure 6: Legislative Assembly (FSIN, undated-LA) ..................................................... 176 Figure 7: The FSIN Organizational Structure (FSIN, undated) ...................................... 177 List of Maps Map 1: Saskatchewan Métis Settlements .......................................................................... 41 Map 2: Percentage of the population with French as first official language spoken (with random distribution of the English-French category) by census divisions, Saskatchewan, 2006 .................................................................................................. 45 Map 3: First Nations in Saskatchewan .............................................................................. 62 Map 4: Treaty Boundaries of Saskatchewan .................................................................. 158 vii Table of Contents Abstract ............................................................................................................................................................... ii Acknowledgements ....................................................................................................................................... iii List of Abbreviations ..................................................................................................................................... iv List of Figures ................................................................................................................................................. vii Preface ......................................................................................................................................... 1 Chapter 1: The Puzzle of Complex Minorities ................................................................ 5 The Argument ................................................................................................................................................... 6 Situating the Project ....................................................................................................................................... 8 Methodology ................................................................................................................................................... 14 Why Saskatchewan? ................................................................................................................................................ 16 Métis ............................................................................................................................................................................... 16 Fransaskois .................................................................................................................................................................
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