1 9 9 4 Annual Report

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THE JAMES BAY AND NORTHERN QUEBEC AGREEMENT AND

THE NORTHEASTERN QUEBEC AGREEMENT

Indian and Northern Affaires indiennes Affairs Canada et du Nord Canada

Published under the authority of the Honourable Ronald A. Irwin, P.C., M.P., Minister of Indian Affairs and Northern Development, Ottawa, 1995

QS-Q036-000-BB-A1

Catalogue No. R71-38/1994

ISBN 0-662-61595-6

MINISTER'S FOREWORD

Since the signing of the James Bay and Northern Quebec Agreement (JBNQA) in 1975 and the Northeastern Quebec Agreement (NEQA) in 1978, several federal departments have been active in fulfilling the federal government's obligations in developing the agreements' various structures.

As the Minister responsible for the coordination of these activities, I am pleased to present the 1994 Annual Report on implementation, in accordance with the James Bay and Northern Quebec Native Claims Settlement Act.

In 1994, progress was made toward the resolution of questions raised by the Cree concerning the implementation of the JBNQA. The second phase of the process agreed upon, in 1992, by the Canadian government and the Cree, is being executed. Discussions have commenced on a framework for the completion of the items of negotiation, leading to the conclusion of an agreement on the implementation of the JBNQA. As I stated on my recent visit with the Cree of northern Quebec, this understanding is of the highest priority, it will open the way to the full and complete implementation of the JBNQA.

In accordance with agreements signed in 1990, the Canadian government continues with the implementation of the terms of these agreements with the Inuit and Naskapi. The Department of Indian Affairs and Northern Development will participate in the negotiations aimed at creating a Nunavik assembly and government. In addition, the Naskapi and the Department have agreed on a five-year capital investment plan.

The JBNQA and the NEQA still pose many difficult challenges. The Canadian government, in partnership with the other signatories to the agreements, intends to meet these challenges, and in so doing, contribute to building a future that will meet the aspirations of Canada and the First Nations.

The Honourable Ronald A. Irwin, P .C., M.P. Minister of Indian Affairs and Northern Development

TABLE OF CONTENTS

MINISTER'S FOREWORD 3 n INTRODUCTION 6 n MAP OF CREE, INUIT AND NASKAPI COMMUNITIES IN QUEBEC 7 n PRINCIPAL PROVISIONS OF THE AGREEMENTS 8 Lands 9 Environmental and Social Protection 9 Economic Development 10 Education 10 Hunting, Fishing and Trapping 10 Local and Regional Administrations 11 Cree-Naskapi (of Quebec) Act 11 -Cree-Naskapi Commission 11 Role of the Department of Indian Affairs and Northern Development 11 n CURRENT STATUS OF THE IMPLEMENTATION OF THE JBNQA AND THE NEQA 12 Background 12 The Cree 13 The Inuit 13 The Naskapi 13 n SUMMARY OF FEDERAL GOVERNMENT EXPENDITURES, 1989-1994 14 n ACTIVITIES AND EXPENDITURES OF FEDERAL DEPARTMENTS AND AGENCIES, 1993-1994 15 Indian and Northern Affairs Canada 15 - Education 15 - Capital, Operation and Maintenance 15 - Electricity 15 - Social Services 16 - Economic Development 17 - Resources Access Negotiations 17 - Indian Registration 17 - Environment 17 - Cree-Naskapi Land Registry 18 - Financial Aid 18 - Oujé-Bougoumou 18 Canada Mortgage and Housing Corporation 19 Human Resources Development Canada 20 Health Canada 21 Industry Canada 22 Fisheries and Oceans 22 Canadian Heritage 24 Transport Canada 25 - Capital Assets 25 - Operations and Maintenance 25 - Marine Transportation Program 25 Environment Canada and the Canadian Environmental Assessment Agency 25 - Great Whale Proposal 25 - Other Proposals 26 Natural Resources Canada 27 - Canadian Forestry Service 27 - Geomatics Canada 27 Federal Office of Regional Development - Quebec 28 Solicitor General Canada 29 Justice Canada 30 Agriculture and Agri-Food Canada 30

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INTRODUCTION

The James Bay and Northern In November 1973, Judge Albert Quebec Agreement (JBNQA) Malouf of the Quebec Superior was signed in 1975 by the Cree Court ordered that all work be and Inuit peoples of Quebec, and stopped immediately, in by the governments of Quebec particular because Quebec had and Canada, the James Bay not yet fulfilled its obligation from Development Corporation, the the 1912 Act. James Bay Energy Corporation and Hydro-Québec. Three years The decision of Judge Malouf later, in 1978, the Naskapi of was reversed by the Quebec Schefferville signed a similar Court of Appeal in 1974. agreement, the Northeastern Nevertheless, it brought about Quebec Agreement (NEQA). negotiations, in the same year, Both are Canada's first modern which led to the signing of the treaties with Aboriginal peoples. JBNQA and the NEQA.

The signing of these Agreements These two agreements represent was the result of a process that more than the settlement of land began in 1898, when the claims. They define the rights of boundaries of Quebec were the Cree, the Inuit and the extended to the 52nd parallel. In Naskapi in many areas, including 1912, Quebec's boundaries were land ownership and resources again extended to the Hudson management, self-government, Strait in the north and to economic development, the Labrador in the east. The Cree, administration of justice, health Inuit and Naskapi peoples and social services and inhabited these vast federal environmental protection. territories, which until then had been known as Rupert's Land. As of June 30, 1994, 11,088 Cree, 7,268 Inuit and 602 The 1912 federal Act concerning Naskapi were living in the the extension of Quebec's territories covered by the JBNQA boundaries carried certain and the NEQA, forming a total obligations. One of these was to population of 18,958 the effect that the Quebec beneficiaries. government should come to an agreement with the Native communities on land-related issues. However, talks on these matters did not begin until 62 years later, after the Cree and Inuit of Quebec filed a motion to halt the hydro-electric development work begun in James Bay by Quebec.

MAP OF CREE, INUIT AND NASKAPIE COMMUNITIES IN QUEBEC

n CREE COMMUNITIES INUIT COMMUNITIES s NASKAPIE COMMUNITY

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PRINCIPAL PROVISIONS

OF THE AGREEMENTS

The James Bay and Northern The Cree have received: Quebec Agreement and the Northeastern Quebec Agreement · $50 million under the have opened the way for a new Chisasibi Agreement (1978); kind of relationship with the Native peoples of northern · $25.5 million under the Quebec. Under the terms of Sakami Lake Agreement these agreements, the Native (1979); peoples in the region have exchanged their claims, rights · $112 million under the La and territorial interests for other Grande Agreement (1986); rights and benefits as specified in the agreements. · $18 million under the Mercury Agreement (1986); The compensation received by the Native communities included · $50 million (for the Chisasibi a payment of $225 million under and Wemindji communities) the JBNQA and $9 million under under the Opimiscow-La the NEQA. They are also entitled Grande Agreement (1992). to a range of services and programs to which the federal The Inuit have received: and provincial governments contribute annually. Additional · $48 million under the lump sum payments have also Kuujjuak Agreement (1988); been provided as a result of treaty implementation · $22.8 million under the agreements and specific JBNQA Implementation agreements, most of which are Agreement (1990). connected with a complementary agreement to the JBNQA. The Naskapi have received:

· $1.7 million under the NEQA Implementation Agreement (1990).

LANDS animals; they participate in the ENVIRONMENTAL AND administration and development SOCIAL PROTECTION The JBNQA and NEQA divide the of the territory; and lastly, they territory specified in the The JBNQA and the NEQA enjoy a preemptive right, until the agreements into three categories provide for consultative bodies to year 2015, on the game reserve (I, II, III). It also specifies the total advise the governments on applications or transfers. The areas of land and the rights in policies and regulations that may Native people must, however, each category. have impact on the envi ronment relinquish this right for 30 percent and the social conditions of the of game reserve applications or Category I lands are set aside Native communities. transfers filed by non-Natives. exclusively for the Native communities that are signa- For this purpose, two commit- The JBNQA and the NEQA tories to the two agreements. tees have been set up under the identify more than 14,000 square Cree and Naskapi Category I JBNQA: the James Bay Advisory kilometres of territory as lands are further subdivided into Committee on the Environment Category I lands, 150,000 square categories IA and IB: "A" for for the area south of the 55th kilometres as Category II lands lands under the jurisdiction of parallel, and the Kativik and one million square Canada, and "B" under that of Environmental Advisory kilometres as Category III lands. Quebec. Lands under federal Committee for the area north of jurisdiction are governed by that parallel. Each committee Native institutions as defined in includes representatives from the the Cree-Naskapi (of Quebec) Native communities and from the Act. Lands under Quebec's two levels of government. jurisdiction are governed by corporations composed exclusively of Native people.

Category II lands also come under provincial jurisdiction, but the Native people participate in the management of hunting, fishing, trapping and the development of game reserves. They also have exclusive hunting, fishing and trapping rights on these lands.

Category III lands are Quebec public lands where Native and non-Native peoples may hunt and fish. However, Native people enjoy certain privileges there under the agreements. They have exclusive rights to the harvesting of certain water species and A happy fisherman. Tourism is a major asset in certain fur-bearing Native economic development.

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The JBNQA also specifies eval- Native peoples by the govern- budgets subject to their approval. uation procedures for developments, continue to apply to the The proportion to be contributed ment proposals. The Cree Cree, the Inuit and the Naskapi. by Canada was set at 75 percent participate in the evaluation of of the approved budgets of the projects affecting territory below Cree School Board and the EDUCATION the 55th parallel, whereas to the Naskapi school, and 25 percent north it is the Inuit who partici- The JBNQA provided for the of the approved budgets of the pate. It is the responsibility of the establishment of the Cree School Kativik School Board. federal Minister of the Board and the Kativik School Environment, or of an admini- Board. Both these boards HUNTING, FISHING AND strator appointed by the Governor possess special powers and TRAPPING General in Council, to administer ensure that the educational the evaluation process for programs provided in the area are Composed of government and projects involving the jurisdiction culturally relevant. Native experts, the Hunting, of the federal government. For Fishing and Trapping matters under provincial Under the terms of the NEQA, a Coordinating Committee reviews jurisdiction, the administrator is school has been built to fulfill the hunting, fishing and trapping appointed by the Quebec needs of the Naskapi management. It also makes government. Projects having community. The Eastern Quebec recommendations to the two impact on Category I Cree lands Regional School Board is in levels of government. come under the authority of the charge of its general Sub-committees have been local Cree administrator. administration. In addition, the formed to deal with more specific Naskapi Education Committee issues, such as big game, The NEQA includes similar performs the same advisory parks, fishing, game reserves, provisions assuring the Naskapi functions as those assigned to commercialization of caribou of participation in the environ- school committees under meat and land use. Native and mental protection of the lands Quebec's Education Act. government representatives covered by that Agreement. participate on sub-committees. The JBNQA and the NEQA established that Canada and ECONOMIC DEVELOPMENT Quebec would contribute to the The Cree Board of funding of these institutions on Compensation, the Makivik the basis of annual operational Corporation and the Naskapi and capital Development Corporation administer compensation funds paid under the agreements by the governments of Quebec and Canada, and by Hydro-Québec. In this way, the three organizations are able to finance projects for the economic development of the Native communities in northern Quebec.

The agreements also specify that economic development programs, such as the Canadian Aboriginal Economic Development Strategy, offered to other In the schools, educational programs take into account the linguistic and cultural realities of the communities.

LOCAL AND REGIONAL CREE-NASKAPI ROLE OF THE DEPARTMENT ADMINISTRATIONS (OF QUEBEC) ACT OF INDIAN AFFAIRS AND NORTHERN DEVELOPMENT Since 1984, the eight Cree The JBNQA and the NEQA communities and the Naskapi include provisions concerning Since the signing of the community residing on lands local Native administrations. In agreements, the Department of covered by the agreements have 1984, to implement the pro- Indian Affairs and Northern become incorporated. Their local visions applying to Indian Development (DIAND) no longer administrations have the power communities, the Canadian provides direct delivery of to adopt by-laws concerning the Parliament passed the Cree- services to the Cree, the Inuit maintenance of public order, Naskapi (of Quebec) Act. This and the Naskapi. Its role is now environmental protection, Act supersedes the Indian Act to provide funding to finance taxation for local purposes, roads (except for matters pertaining to communities, capital spending and transportation, local Indian status) and institutes a projects and programs delivered business and the use of lands form of self-government. It also by Native administrations. It also and resources. Quebec has also establishes the land manage- participates in several plans for passed legislation setting up the ment system for Category IA the management of resources Cree Regional Authority - which lands (Cree) and IA-N lands and of lands covered by the is responsible in particular for (Naskapi). agreements. setting up services common to Cree communities - and the Cree Finally, DIAND is responsible for Cree-Naskapi Commission Board of Compensation. implementing the agreements The Cree-Naskapi (of Quebec) with respect to the overall The Inuit communities are Act also brought about the obligations of the Government of organized into municipalities creation of the Cree-Naskapi Canada. In so doing, it must under Quebec law. Their regional Commission, whose role is to ensure the co-ordination of the structure, the Kativik Regional investigate appeals concerning various interventions on the part Government, was established the Act's application. It must of other federal departments in under provincial legislation. One also produce biannual reports on their dealings with Native of the duties of the Makivik the application of the Act, which communities. Corporation is to protect the are then submitted to the interests of the Inuit with regard Minister of Indian Affairs and to the implementation of the Northern Development to be JBNQA. tabled before Parliament (its most recent report was submitted to the Minister in June 1994 and was tabled on June 22, 1994 at the House of Commons). The Cree-Naskapi Commission consists of commissioners appointed by the Governor in Council, on the recommendation of the Cree Regional Authority and the Naskapi community.

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CURRENT STATUS OF THE IMPLEMENTATION OF THE JBNQA AND THE NEQA

BACKGROUND Four years later, in September 1990, the federal government The implementation process of signed separate agreements with the JBNQA and the NEQA, the Makivik Corporation and the signed in 1975 and 1978 Quebec Naskapi Band respectively, proved to be longer concerning the implementation of and more complex than the JBNQA and the NEQA. expected. These agreements released the

federal government from certain In 1981, the House of Commons obligations under the JBNQA and Standing Committee on Indian the NEQA. In return, the Affairs urged the federal government agreed to provide government to examine the compensation including a problems relating to the JBNQA. one-time grant of $22.8 million to The resulting depart-mental the Inuit and $1.7 million to the report -- the Tait Report -- Naskapi. reminded the federal government

of the importance of fulfilling The government also made other obligations That it had assumed commitments toward these under the terms of the communities. A number of agreement, and of implementing activities were carried out under the first overall settlement of the implementation agreements land claims in Canada which was signed in 1990 with the Inuit and reached in 1982. However, this the Naskapi. This included the report and the government setting up of various working measures applied as a result of it groups and organizational have not solved all the problems structures. related to the implementation of the JBNQA.

In June 1986, Cabinet approved a process for the implementation of the government's obligations under the JBNQA.

THE CREE THE INUIT THE NASKAPI Before beginning discussions on In July 1994, the Quebec In the context of the implemen- the implementation of the government and the Nunavik tation of the JBNQA, numerous JBNQA, the federal government Constitutional Committee signed meetings have been held be- and the Cree agreed on a stra- a global agreement to create a tween Naskapi representatives tegy on November 10, 1992. This Nunavik assembly and and the different federal partners three-stage strategy provided for government. In August 1994, the on the ways and means of a solution to urgent health and federal government agreed to increasing employment for the safety problems; the participate in the negotiations. Naskapi. These discussions development of a framework for Since then, a number of should continue until the parties negotiations involving the Cree, meetings have been held, and reach an agreement. In addition, the federal government and the the parties hope to reach an a five year capital spending Quebec government; and the agreement in April 1995. The agreement with the Naskapi was beginning of negotiations. implementation process for the completed at the end of 1994. JBNQA is also continuing with As part of this process, on the Inuit. August 4, 1993, the federal government signed an agreement providing $34.7 million to the Cree over a seven-year period (1993-2000). This agreement relates to the improvement of health and safety conditions in Cree communities, and for the adjustment of their infrastructure capital budget.

At the end of 1994, the federal government and the Cree agreed to begin discussions aiming at identifying items for negotiation, and at defining the financial parameters that will serve to establish a framework for future negotiations. At the same time, the federal government and the Cree representatives began discussions in order to review the operational and maintenance budgets of the Cree communities. Construction of a new sewage system in Chisasibi.

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SUMMARY OF FEDERAL GOVERNMENT EXPENDITURES,1 ($) 1989-1994

1989-1990 1990-1991 1991-1992 1992-1993 1993-1994

Indian and Northern 68,489,100 95,986,527 89,536,504 109,578,050 109,448,407 Affairs Canada Canada Mortgage and 27,377,572 27,377,572 30,319,000 33,337,409 38,196,909 Housing Corporation2 Human Resources 6,348,000 3,201,519 5,182,104 8,517,274 8,015,000 Development Canada2 Health Canada 1,262,151 1,418,165 1,685,876 2,186,641 2,719,646 Industry Canada 1,348,600 2,395,477 357,654 844,213 2,573,652 Fisheries and Oceans 660,000 1,277,491 1,253,645 1,582,000 2,533,500 Heritage Canada 2,160,517 2,360,314 2,393,187 2,416,702 3 2,294,750 Transport Canada 8,600,000 7,600,000 4,900,000 674,650 1,329,870 Environment Canada 74,000 84,575 815,855 4 938,718 4 884,540 4 Natural Resources Canada 391,224 309,025 502,119 730,175 728,661 - Canadian Forestry Service Federal Office of Regional nil 8,145 391,937 580,316 379,119 Development - Quebec5 Solicitor General nil 32,500 5,000 60,000 1,362,712 Justice Canada nil 45,550 nil 70,000 47,700

TOTAL 116,711,164 142,096,860 137,342,881 161,516,148 169,288,025

TOTAL FEDERAL EXPENDITURES BETWEEN 1989 AND 1994: $ 741,867,030

1 These figures are provided by each department. 2 Calendar year. 3 Amount revised from 2,790,412 to 2,416,702

4 Including the expenditures of the Canadian Environmental Assessment Agency (CEAA). 5 Report on the financial participation of the Federal Office of Regional Development – Quebec – on the Agreement territories during the years 1990-1991 to 1993-1994.

ACTIVITIES AND EXPENDITURES OF FEDERAL DEPARTMENTS AND AGENCIES, 1993-1994

n INDIAN AND Capital, Operations and NORTHERN AFFAIRS Maintenance CANADA DIAND provided capital and

operating grants to the Cree and Education Naskapi totaling $37,706,601; During the 1993-1994 fiscal year, this amount includes $5.5 million the Department of Indian Affairs allocated to the Cree for the and Northern Development implementation of infrastructure contributed $46,386,155 for projects related to health and operations and maintenance, as safety in five communities. well as capital expenditures on schools. These funds were Electricity transferred to the Quebec Two Cree communities, government, which distributed Waskaganish and Wemindji, are them to the school boards. not yet linked to the

Hydro-Québec network. Most of these funds Wemindji operates its own ($39,091,403) went toward hydroelectric station and operations and maintenance of generators, with an annual education services. The Cree operating grant provided under an School Board received agreement with DIAND that ends $28,764,794, the Kativik School on March 31, 1996. However, Board received $8,702,118, and Hydro-Québec has begun the Eastern Quebec School construction of an electrical line, Board received $1,624,491. and completion of the link is Capital expenditures repre- planned for November 1995. sented a total of $7,214,651.

During the 1993-1994 school year 5,578 students, including 2,980 Cree, 2,452 Inuit and 146 Naskapi attended school

In addition $80,101 were provided by DIAND in the form of grants for various cultural activities and as direct financing for post secondary education assistance.

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In Waskaganish, electricity is During the 1993-1994 fiscal year, the communities received the currently produced by four diesel following amounts: generators whose operation is financed by DIAND. However, Waskaganish this community wishes to · Operations and maintenance $1,625,974 generate its own electricity. A tripartite technical committee · Major repairs 305,211 with representatives from · Soil decontamination 115,543 Waskaganish, Hydro-Québec and DIAND was set up in June Sub-total: $2,046,728 1994 to identify the best form of power supply for that community.

Wemindji (See table at right) · Soil decontamination $1,620,060

· Grant 1,100,000

Sub-total: $2,720,060 Total $4,766,788

Social Services

DIAND contributed $2,835,106 During the 1993-1994 fiscal year, these three communities received for social assistance services in the following amounts: the communities of Mistissini, Waswanipi and Kawawachika- Mistissini $995,360 mach. In the other communities, these services are provided by Waswanipi 935,789 the Quebec government. Kawawachikamach 903,957

(See table at right) Total $4,766,788

Since 1991, the federal government has financed two additional programs: the five-year During the 1993-1994 fiscal year, the beneficiaries of the JBNQA an National Strategy for the the NEQA received the following amounts: Integration of Persons with Disabilities (NSIPD), and the NSIPD FVI Total four-year Family Violence Cree $23,192 $144,253 $167,445 Initiative (FVI). Inuit 25,744 159,417 185,161 (See table at right) Naskapi 1,764 10,956 12,720 Total $50,700 $314,626 $365,326

Economic Development During the 1993-1994 fiscal year, DIAND contributed the following amounts: Through the Canadian Abori-ginal

Economic Development Cree $1,016,695 Strategy, DIAND contributes toward the Cree operation of Inuit 870,440 Community Economic Develop- Naskapi 43,930 ment Organizations (CEDO), which provide technical and Total $1,931,065 financial assistance for development projects.

(See table at right)

Resources Access to this inventory; once potential- A federal representative Negotiations ly contaminated sites had been appointed by DIAND continues to identified on Category IA and participate on the environmental During the 1993-1994 fiscal year, IA-N lands, DIAND and the Cree advisory committees established the communities of Chisasibi and Regional Authority worked to by the JBNQA. Mistissini received $115,875 as detect problems likely to part of the Resources Access constitute a risk to the environ- DIAND also participated in a Program (RAN), to enable them ment, health or safety of the public examination of the Great to negotiate their participation on Native communities. The next Whale Proposal, by presenting a the issues of territorial phase will involve detailed brief on the conformity of the management and mining descriptive studies in areas environmental impact study on exploration. where environmental problems the proposal.

have been confirmed, in order to Indian Registration assess the scale of these The Cree and Naskapi com- problems and to identify the munities maintain Indian mem- most appropriate solutions. bership records on behalf of DIAND. The Department contributed $67,890 toward the maintenance of the registry during the 1993-1994 fiscal year.

Environment DIAND provided a grant of $42,000 to the Cree Regional Authority to enable it to produce an environmental issues inventory among the Cree communities. It also took certain steps related

Characterization work at potentially contaminated sites.

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Cree-Naskapi Land Registry Finally, a course on the GIS DIAND also contributed in the (Geographic Information System) area of safety, with regard to The Cree-Naskapi (of Quebec) was given to representatives of emergency measures, by Act provides for the organization the Mistissini and of the Grand providing an overall grant of of a registry of rights and Council of the Crees (of Quebec). $50,000 for all the Cree and interests granted on Category IA The aim of the course was to Naskapi communities, to enable and IA-N lands and buildings illustrate the various applications them to purchase located on those lands. of this system, which can be radio-communications

used for integrated resources equipment. During the 1993-1994 fiscal year, management. the Central Registrar continued Oujé-Bougoumou to collaborate with the Financial Aid communities that already have In May 1992, DIAND concluded local registration offices, namely The Cree Regional Authority an agreement with the Cree of Mistissini, Nemaska and received $195,720 in financial aid Oujé-Bougoumou which included Kawawachikamach. Further- from DIAND. This amount was provisions for the construction of more, since the maintenance of used to cover costs related to a new village at Lake Opemisca. a land registry service is one of the negotiation of the operational During that year, DIAND the inherent aspects of self- and maintenance budget, as well contributed financially to the government, the Registrar also as costs arising from construction of houses, public continued to work with the other participation in. various advisory facilities and infrastructures, to a Cree communities to help them committees. In addition, DIAND socio-economic fund and to the complete the process of setting provided a grant of $13,500 to operations and maintenance up their own registry offices. Mistissini for the production of a budget, and contributed 75 tourism development plan. percent of the construction costs The joint standing committee to for a school. During the study regulations suggested few The Makivik Corporation obtained 1993-1994 fiscal year, the Cree changes to the Cree-Naskapi a grant of $259,113, to assist of Oujé-Bougoumou received Land Regulations, to clarify cer- with the operational costs of $14,655,668, including tain aspects. DIAND is currently agencies established to $1,893,649 for the school. carrying out consultations with implement the JBNQA, as well the Grand Council of the Crees as with the costs of overall Furthermore, under an (of Quebec) and with the Naskapi Agreement implementation agreement between the Quebec in this regard. activities. The Corporation also government and the Cree of received $27,600 to cover costs Oujé-Bougoumou, signed on Furthermore, colour mosaics related to its participation on September 14, 1994, DIAND depicting the "village" sector of various advisory committees. made a commitment to pay the James Bay Cree communi- $100,000 in capital expenditures ties were produced in collabora- The Naskapi, for their part, related to the installation of a tion with the Geomatics Canada received $30,000 to cover the telephone network. section of the Department of cost of negotiations for the Job Natural Resources Canada. Creation Strategy, the opera- Designed to facilitate the tions and maintenance budget management of Category IA and the capital budget. lands, they were distributed to each community.

n CANADA MORTGAGE AND The On-Reserve Non-Profit far North. The SHQ has decided HOUSING CORPORATION Housing Program provides to participate in this Remote subsidies to First Nations to Housing Program and to The Canada Mortgage and cover a substantial portion of contribute funds. Nine dwellings Housing Corporation (CMHC) amortization and operating costs were approved for construction in supports a range of housing for housing projects. 1994, and will be built in 1995 in programs in northern Quebec. Commitments given in 1994 the Inuit community of Kuujjuaq. These programs apply mainly to under this Program, offered in public housing, non-profit conjunction with DIAND, will housing on reserves and housing result in 94 new housing units in for citizens living in rural areas northern Quebec. and in Aboriginal communities. The CMHC provides most of its In October 1994, the federal funding through agreements with government announced a new Aboriginal groups and the initiative to provide funds for the Société d'habitation du Québec construction of new housing (SHQ). units in the communities of the

Although the CMHC continues to subsidize the annual operational costs of the projects which fall under housing programs established before 1986, no new commitments were made under these programs between 1986 and 1993. However, new housing units have been started under the terms of post-1985 housing programs.

Until the end of 1993, the post-1985 Non-Profit Housing Program provided approvals to public and private non-profit organizations, and to nonprofit cooperatives, for projects in which rent is proportional to household income. Subsidies provided on an ongoing basis make up the difference between operating costs and revenues. A five-bedroom family home in Akulivik.

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In 1994, subsidies provided by the CMHC for housing in the Aboriginal Communities amounted to $42,289,524.

Housing Programs in Northern Quebec—1994 Cree Inuit Naskapi Total Pre-1986 Programs -Federal subsidies $3,106,371 $15,465,953 $540,931 $19,113,255 -Number of subsidized units 639 928 70 1,637

Post-1985 Programs -Federal Subsidies $6,386,135 $16,532,130 $258,004 $23,176,269 -Number of subsidized Units 709 701 24 1,434

n HUMAN RESOURCES Nearly $200,000 were also DEVELOPMENT CANADA invested in the Kativik region under the Community Futures For the 1993-1994 fiscal year, Program. the contributions from the Department of Human Resources The Cree and Naskapi partici- Development (DHRC) to activities pate in the "Pathways to in Cree, Naskapi and Inuit Success" strategy. Under this communities amounted to strategy, the Cree Local $8,015,000. Management Board received $2,532,000, and the Naskapi Under the terms of an agree- Local Management Board ment with DHRC (previously received $283,000. Employment and Immigration Canada), the Kativik Regional Administration received nearly $5,000,000. This three-year agreement will end on March 31, 1995, and the Inuit are cur-rently negotiating its renewal. Under this agreement, the Inuit of northern Quebec are taking charge of the management of employment and training programs and services in their communities.

n HEALTH CANADA For their projects within the Finally, Health Canada inter- "Brighter Futures" program, the vened in connection with Hydro- During the 1993-1994 fiscal year, Native communities shared Québec's Great Whale hydro- Health Canada provided overall grants of $397,114. These pro- electric development proposal. subsidies of $2,719,646 to the jects were related to one or more The Department analyzed the Native beneficiaries of the of the program's themes developer's Environmental Im- Agreements. This amount including solvent abuse, mental pact Study and presented a brief includes $659,680 in payments health, child injury prevention, before the Federal Environmental to cover uninsured health bene- parenting, child development and Assessment Panel responsible fits for beneficiaries living away healthy infant development. The for examining the impacts of from their communities. Cree received $149,674, the Inuit Great Whale. This brief set out $231,815, and the Naskapi the Department's concerns Nearly half the funds allocated by $15,625. Within the framework of regarding the proposal's potential Health Canada to the com- the Family Violence program, the health risks to Native peoples. munities benefiting from the Cree received $20,323 and the JBNQA and the NEQA, Inuit $94,075. $1,285,996, was used to conduct projects under the Native Health Canada also provided Alcohol and Drug Abuse financial support to certain in Program. Through this Program, school activities. This included a under the responsibility of the grant of $82,567 to the Kativik Medical Services Branch, the School Board to enable it to James Bay Cree Board of Health carry out the following initiatives: and Social Services received development of a course in $609,959, the Nunalituqait nursing, summer employment for Ikajuqatigiitut Inuit Association six nursing students and "Career received $641,670, and the Days" in the schools. It also Naskapi received $34,367. In granted $15,037 to the James addition, Inuit communities Bay Cree Board of Health and received an overall sum of Social Services to develop $149,854 for projects attached to student awareness of careers in the "Solvent Abuse" treatment the field of health care. program, and $15,000 under the Canadian Anti-drug Strategy.

1 9 9 4 A N N U A L R E P O R T n INDUSTRY CANADA n FISHERIES AND OCEANS Fisheries and Aquaculture Testing and Experimentation The role of Industry Canada in The Department of Fisheries and Program (FATEP) and the the territories covered by the Oceans of Canada (DFO) Quebec Federal Fisheries JBNQA and the NEQA is to pro- administers several research and Development Program (QFFDP). vide support for business de- development programs in velopment projects undertaken northern Quebec. Its responsi- DFO also provided financial for the benefit of the Cree, Inuit bilities include management of assistance to projects and Naskapi communities. the fisheries and aquatic re- administered by the Makivik During the 1993-1994 fiscal year, source habitats in collaboration Corporation. The organization the Department committed ex- with the Cree and the Inuit (the intends to develop a network penditures of $2,573,652 for this Department has little contact through the inter-community purpose. with the Naskapi, who fish only trade program using products freshwater species which are from hunting and fishing in Funds were used for the crea- managed by Quebec). Nunavik. Through its Inspection tion, acquisition, expansion or Branch, the Department also modernization of 23 businesses. In November 1994, in recognition provided technical assistance in Financial assistance was also for an exemplary partnership with analyzing the quality of mussels provided to four other busi- the Makivik Corporation, DFO in northern Quebec. nesses to fulfill their needs in Quebec Region awarded the areas such as feasibility stu- Corporation the Deputy Minister's As part of the Department's dies, business planning, profes- Commemoration Award. In fact, Quality Management Program sional development and invest- since the early 1980s, numerous (QMP) the same Branch also ment counseling. partnership ventures have been carries out inspections of the fish realized, between Makivik and processing plant located in The Department also contributed DFO, mainly in fisheries Waswanipi. The Cree Regional financially to various industrial research and development, and Authority received a financial sectors in the region, parti- resource management. contribution in order to conduct cularly the accommodation, food commercial fishing development and beverage industries. It also During the 1993-1994 fiscal year, projects, with a view to making provided project support in the DFO ensured the im- the plant viable. fishing and trapping, trans- plementation of the Native portation and communications Fisheries Strategy (NFS) and the Other projects were carried out sectors, the wholesale and retail application of the beluga under the Habitat Action Plan trade and in business services. management plan, in collabora- (HAP), formerly known as the tion with the Nunavik Municipal Viable Fisheries Program. Corporations. Fisheries agree- Through this Program, the Cree ments were also signed with 13 Regional Authority was thus able of the 14 Inuit communities to measure the growth of sea served. grass beds in the Wemindji area, and develop a program for the The Department also continued monitoring of fish habitats along implementation of the special the Northern Route. The Inuit marine fishing development pro- evaluated and restored the grams, which are likely to gen- habitats for arctic char in erate valuable socio-economic Quaqtaq and Kangiqsujuaq. In a benefits in northern Quebec. fourth These programs are known as the

project, information was gathered The Science Branch, in a new wastewater treatment on fish habitats in James Bay collaboration with the Fisheries system at Waskaganish, and it and in southeastern Hudson Bay and Habitat Management participated in the review of the (from Kuujjuarapik to Inukjuak), Branch, also held a workshop to impact of low-altitude military and the locations of these discuss traditional and ancestral flights over Agreement territories. habitats were mapped. knowledge of the beluga of Nunavik. The purpose of this During the 1993-1994 fiscal year, Through its Science Branch, the workshop was to develop a the Department contributed Department continued its activi - five-year management plan for $2,533,500 to these various ties within the multidisciplinary the populations present in James projects and programs, of which study of the marine environment Bay, Hudson Bay and Ungava, $1,091,000 was connected with in Hudson Bay, which began in as well as in the Hudson Strait. the activities of the Science 1993. One aspect of the study Branch in northern Quebec. was to assess the effects of Lastly, in its advisory capacity changes in the flow of fresh water concerning the environmental on the integrity of the marine assessment of projects submit- environment. The Department ted to the Environmental As- continued the analysis of sessment and Review Process samples and data collected for (EARP), DFO examined the that purpose in 1993. It also Great Whale hydro-electric conducted field work as part of a proposal. It also submitted a research project aiming to departmental opinion to the determine the importance of Federal Public Examination terrestrial organic material Commission, which ruled on the transported by the Great Whale conformity of the proposal. DFO River, for the productivity of its was called on by the Department estuary. of Indian Affairs and Northern Development to assess the Research work also continued on environmental impacts of the beluga populations in Hudson Bay and Hudson Strait, in collaboration with the Makivik Corporation. This project aims to assess the level of metal con- tamination in beluga. A tour to several Inuit communities along the east coast of Hudson Bay was organized in order to explain the purpose of the activities (sampling, tagging, etc.), to present the results obtained and to discuss future research to be conducted on this species.

Inuit representatives who participated at the workshop.

1 9 9 4 A N N U A L R E P O R T n CANADIAN Quebec. Its main areas, of During the 1993-1994 fiscal year, HERITAGE intervention are in the operation Canadian Heritage provided of Native communications net- support, through its programs, to Through its different programs, works and friendship centres, the Native communities in northern Canadian Heritage, acting protection of Native languages Quebec amounting to through the Native Citizens' and cultures, and support for $2,294,750. Directorate, supports a wide Native organizations and Native range of activities in northern womens' issues.

CANADIAN HERITAGE, PROGRAM EXPENDITURES IN 1993-1994

Northern Native Broadcast Access Program James Bay Cree Communications Society $371,000 Taqramiut Nipingat Incorportated (TNI) 1,152,000

Aboriginal Representative Organizations Program Makivik Corporation 199,202

Native Friendship Centre Program Senneterre Native Friendship Centre Inc.* 145,853 Val-d’or Native Friendship Centre Inc.* 218,779 Cree Indian Friendship Centre of Chibougamou Inc. 182,316

Aboriginal Women’s Program Cree Women Council 9,100 Grand Council of Naskapi 6,000

Native Social and Cultural Development Program Eastmain Band Council 10,500

Total $2,294,750

* The services provided by Native friendship centres are not offered exclusively to the agreements’ beneficiaries.

n TRANSPORT CANADA Marine Transportation Great Whale Proposal Program The financial contributions of The evaluation of the Great In 1994, the Department began Transport Canada to the com- Whale hydro-electric proposal the second phase of preliminary munities covered by the JBNQA continued. The proposal is studies concerning the comple- and the NEQA took the form of subject to the federal and tion of this program in Nunavik. allocations for capital assets, for provincial review process set out The second phase of this feasi- operations and maintenance, and in the JBNQA, and to federal bility study, which should be for the Maritime Transportation Environmental Assessment and completed by April 1, 1995, has Program. Review Process guidelines order been extended to 11 other Inuit (EARP). Because of the need for villages. During the 1993-1994 Capital Assets a concerted review assessment fiscal year, the expenditures of the entire proposal, in January The opening of the Umiujaq linked with these studies 1992, the federal and provincial airport in August 1993 signaled amounted to $1 million, shared governments, the Cree Regional the end of the Northern Quebec equally between the Ministère Authority, the Grand Council of Airport Infrastructures des Transports du Québec and the Crees (of Quebec), the Construction Program. The Transport Canada. Kativik Regional Government and Department's participation in this the Makivik Corporation signed a area was thus limited to a few Memorandum of Understanding minor projects, representing a (MOU) to ensure the coordination total investment of $43,000, at n ENVIRONMENT CANADA of environmental assessment the Schefferville and Eastmain AND THE CANADIAN procedures. airports. ENVIRONMENTAL

ASSESSMENT AGENCY In accordance with this Operations and Memorandum of Understanding, Maintenance Environment Canada and the the four federal and provincial Canadian Environmental Following an agreement be- committees and commissions Assessment Agency (CEAA) tween the Naskapi and the established under chapters 22 share the federal obligations Montagnais of Schefferville, in and 23 of the JBNQA and the relating to the implementation of August 1992 Transport Canada federal panel responsible for measures for the protection of granted the operating and examining the Great Whale the environment and of the social maintenance contract for the Proposal completed a joint report conditions, as provided in Schefferville airport to the on the conformity of the chapters 22, 23 and 24 of the Naskapi. Under this three year Environmental Impact Study JBNQA. contract, the Naskapi received (EIS) of the Great Whale

$200,235 during the 1993-1994 Proposal. The EIS had been filed With regard to chapters 22 and financial year. This initiative in August 1993 by Hydro- 23, the CEAA assisted the forms part of the Canadian Québec, in response to direc- federal administrator, the local Aboriginal Economic tives issued in September 1992. administrators and the federal Development Strategy (CAEDS). review committees, as appro- The expenditures of the CEAA priate, in the environmental The contract granted to the related to the assessment of the assessment of the following Naskapi is modeled on those Great Whale Proposal amounted development proposals: granted for the operation and to $667,845 for the 1993-1994 maintenance of the airports at fiscal year. Eastmain, Waskaganish and Wemindji. These three Cree communities received a total of $586,635 during the 1993-1994 fiscal year.

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Other Proposals 1994, after having taken these was ensured through the ser- recommendations into consi- vices of consultants. The CEAA acted as secretariat deration, the administrator for the Federal Review Panel authorized the proposal. The A representative of the Canadian South of the 55th Parallel CEAA's expenditures in con- Wildlife Service also continued to (COFEX-South) for the environ- nection with the environmental participate in the Hunting, mental evaluation of municipal assessment of this proposal Fishing and Trapping Co- works in Chisasibi, Eastmain amounted to $12,011 for the ordinating Committee. The and Waskaganish. 19931994 fiscal year. representative's main interven-

tions concerned Canada's initia- In Chisasibi, after examining the The local administrator of tives with regard to amendments impact study, COFEX- South Waskaganish initiated proce- to the International Migratory Bird recommended authorization of a dures for the assessment of a Convention, with the goal of community sewage and waste- community wastewater treat- making the Convention more water treatment system. The ment system. COFEX-South compatible with the JBNQA. expenditures of the CEAA requested additional information Other interven-tions concerned related to the environmental in order to proceed with a pro-per the conservation of birds, assessment of this proposal assessment of the proposal. particularly the Canada goose, amounted to $12,274. whose numbers are declining.

Environment Canada provided In February 1994, the local representation on the James Bay Lastly, the work of the Canadian administrator of Eastmain sub- Advisory Committee on the Wildlife Service on the lands mitted to COFEX-South the Environment and on the Kativik covered by the agreements impact study concerning a pro- Environmental Advisory brought to light information about posal to renew the waste-water Committee. This representation the effects of hydro- electric treatment system. In April developments on nest-ing sites

of the Canada goose. The Inuit

participated in some of these initiatives. Meetings were also held in order to discuss the problems related to the conservation of that species with the Cree Hunters' and Trappers' Association.

For the 1993-1994 fiscal year, expenditures by Environment Canada amounted to $109,967. This amount included $85,000 paid to the Quebec government in the form of a federal contribution toward the financing of the secretariats of the advisory committees.

Environment Canada participates in the management of migratory bird populations in consultation with the Native peoples.

n NATURAL RESOURCES Financial contributions of Geomatics Canada CANADA $370,681 were granted to the Geomatics Canada is active on A-Pit-See-Win cooperative of the territories covered by the The Department is active in the Waswanipi in order to carry out agreements through its Legal territories covered by the agree- the following operations: Official Surveys Division. Its ments through the Canadian · planting (505,000 trees); activities with Native communi- Forestry Service and Geomatics ties consist mainly of the pro- Canada. · scarifying (97 hectares); duction of cartographic informa-

· thinning (60 hectares); tion and the provision of consul- Canadian Forestry Service ting services. It also supervises · forest roads (4 km); The role of this Service is to certain projects relating to land implement the Forest Manage- · mosaic cut to enhance surveying and map production. ment Program for Indian Lands regeneration and (FMPIL), in cooperation with the diversification (200 In contrast with other James Bay Cree communities. This Pro- hectares); Cree villages, Oujé- Bougoumou gram enables Native people to was the only one for which, until · clearing of delimbing areas manage their forestry resources now, the government had no for reforestation (10 km); according to a code of ethics large-scale cartographic and based on Native customs. information. Photographs on a · drafting of an integrated scale of 1: 10,000 will be used in During the 1993-1994 fiscal year, resource management plan. 1995 to produce maps and the FMPIL granted $728,661 to plans. the Cree of Mistissini and In addition, Native trainees were Waswanipi, for activities in introduced to forestry and The Legal Surveys Division acted keeping with the Program provided support to the technical as manager in a program with philosophy. team. costs shared between DIAND and the Mistissini community. In Mistissini, the Eenatuk The Canadian Forestry Service is The latter requires maps for Forestry Corporation received represented on the Regional development projects, whereas $357,980 for its projects, inclu- Inter-departmental Committee on the Department needs additional ding the planting of 494,000 Environmental Assessment and large-scale maps to illustrate the trees, thinning cuts on 10 hec- thereby participates in the interests granted to members of tares of forest, and the scarify- assessment of projects on the community or to other non- ing of 91 hectares. These funds Agreement territories, such as Native parties. enabled the Corporation to have the Great Whale hydroelectric an integrated resources proposal and the Troilus mining management plan drawn up and proposal. Its role is to make to provide financial support to its recommendations and to advise technical team. the minister responsible on forestry aspects concerning both the production potential and the ecosystem.

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In collaboration with the Land the Division was presented to the potential of small business in Surveying Service of the members of the Mistissini general in every region of ministère de l'Énergie et des community. The Division also Quebec. The Federal Office Ressources du Québec, the collaborated with Justice Canada administers certain financial aid Division prepared technical on the study of a draft prepared programs aiming at small busi- descriptions of lots 1, 2, 3, 4 and by the Quebec government in nesses in Quebec, one of which 5 of Waswanipi. These preparation for the final transfer of is the Enterprise Development documents, which were trans- Category IA lands to the Program (EDP). This Program lated into English this year, are Canadian government. has a tourism component whose necessary for the final transfer of aims include promoting and Category IA lands to the strengthening the tourism Government of Canada. industry in northern Quebec, n FEDERAL OFFICE where a high proportion of the In the area of consulting ser- OF REGIONAL Cree and Inuit populations is vices, the Legal Surveys Divi sion DEVELOPMENT- concentrated. intervened in February 1994, in QUEBEC connection with the "Crina" During the 1993-1994 financial system for the registration of The mission of the Federal Office year, under the tourism Cree-Naskapi interests. In of Regional Development Quebec component of the Enterprise addition, in November 1994, the is to contribute to the Development Program, $260,632 "Results Stage" computer- development of the economic was granted to the Cree ized data system developed by communities and $118,487 was granted to the Inuit. The initiatives included a study on the establishment of a multi-purpose tourism facilities in Kuujjuaq as well as the construction of hotels in Oujé-Bougoumou and Eastmain.

The Capissisit Lodge in Oujé- Bougoumou. A good example of a project whose design reflects Cree tradition.

n SOLICITOR GENERAL During the 1993-1994 financial The Correctional Service of CANADA year, the Department paid Canada, for its part, paid $35,000 $60,000 to the Kativik Regional to the liaison, group, Native In 1994, the negotiations car-ried Administration to enable it to Parajudicial Services of Quebec. on by the Department of the consult the population and carry That organization answers Solicitor General with repre- out research to define the police certain specific needs related to sentatives of the Naskapi people service needs and the ways of offenders passing through the and the Quebec government led fulfilling them. In June 1994, the correctional system and being to a tripartite agreement on local Administration presented a re- released. This clientele group police services. This three-year port containing a proposal on the comes under the purview of the agreement, which came into organization of police services for Correctional Service of Canada, effect on April 1, 1994, provides northern Quebec. The the agency responsible for the community of Department then began tripartite receiving and treating Cree, Inuit Kawawachikamach with the negotiations with Quebec and and Naskapi offenders services of three Native police the Kativik Regional Government. incarcerated in federal prisons. officers who benefit from support The Correctional Service also and supervision from Sûreté du The Department's Native Cor- invested $25,000 in various Québec. rectional Affairs Division, for its programs designed to combat part, continued to participate drug addiction and sexual The tripartite negotiations on both formally and informally in offences, and to promote police services, carried on with the Justice-Solicitor General education geared toward literacy Quebec and the Cree Regional Working Group with the Inuit of as well as Native culture and Authority, also led to an agree- northern Quebec. The Inuit spirituality. ment. Since April 1, 1994, a Justice Task Force completed three-year tripartite agreement and presented its research report During the 1993-1994 fiscal year, guarantees the nine James Bay entitled "Profile of Criminality in the Department of the Solicitor Cree communities the services of Nunavik". This research project General Canada contributed the 42 Native police officers. These was financed by Solicitor sum of $136,271 to its activities nine communities independently General Canada, which also took in northern Quebec. assume responsibility for local charge of having the report police services. The tripartite translated and printed. During the agreements with the Cree and 1993-1994 fiscal year, the the Naskapi enable the federal financial contribution of the government to fulfill its Native Correctional Affairs obligations in the field of policing Division amounted to $16,271. services.

1 9 9 4 A N N U A L R E P O R T n JUSTICE CANADA n AGRICULTURE AND AGRI-FOOD CANADA Justice Canada worked in close collaboration with the Grand Agriculture and Agri-Food Council of the Crees (of Quebec) Canada works with the commu- to implement the se-cond phase nities in northern Quebec in of the "Justice for the Cree" connection with the federal Project. Phase I consisted of certification required for any research on criminality, the establishment that intends to justice system and the police. export its production, wholly or in For Phase II, public con- part, outside of Quebec. sultations are planned in the Cree communities, on the re- In November 1993, the veteri- sults of that research. These narian responsible for plans and consultation, to be spread out specifications at the Food over three years, have as their Production and Inspection aim the designing and testing of Branch (FPIB) traveled to local and regional initiatives in Kangiqsualujjuaq in order to the field of justice. evaluate the facilities and operating protocol required to During the 1993-1994 fiscal year, operate a caribou abatoir. He the Department granted $47,700 then submitted his observations to the Grand Council of the and recommendations to the Crees (of Quebec) to cover costs Makivik Corporation, which related to Phase II of the project. wishes to export. The Department is still awaiting an In addition, a representative of official application for accredi- the Department sits on a Justice tation to move forward on this – Solicitor General Working file. Group. The mission of this working group is to identify the improvements to be made to the justice system for the Inuit of northern Quebec.